Documentation of Devolution of Functions, Functionaries ...
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Documentation of
Devolution of Functions, Functionaries and Funds
To Panchayati Raj Institutions in Jharkhand
Draft Report
Submitted To
UNICEF, INDIA
Prepared By:
TARU Leadin g Edge Pvt. Ltd, New Delhi
CONTENTS
LIST OF ABBREVIATIONS ............................................................................................... 5
INTRODUCTION ............................................................................................................. 1
1.1. Preview of State Demographics ................................................................................. 1
1.2. Induction of PRI’s in Jharkhand ................................................................................. 2
1.2.1 Jharkhand Panchayati Raj Act, 2001 ..................................................................... 2
1.2.2 Local Governance in Tribal Areas .......................................................................... 4
1.2.3 PRI Elections in Jharkhand ................................................................................... 5
1.3. Theory of Devolution ................................................................................................ 5
1.3.1 Powers and Functions of Local Bodies ................................................................... 6
1.3.2 Jharkhand’s Ranking in Devolution Study .............................................................. 7
1.4. Scope of Work ......................................................................................................... 7
1.4.1 Objective ........................................................................................................... 7
1.4.2 Terms of Reference............................................................................................. 8
2. Approach and Methodology ........................................................................................ 9
2.1 Approach to the Study .......................................................................................... 9
2.2 Understanding of the Task .................................................................................... 9
2.3 Approach to the Task ........................................................................................... 10
2.4 Research Tools .................................................................................................... 12
2.5 Information Collection and Stakeholders ................................................................ 13
2.5.1 Stakeholder Representation for Stakeholder Consultation in other States ................ 13
2.5.2 Purposive Information Collection ......................................................................... 14
3. STATE LEVEL FINDINGS ON DEVOLUTION OF 3Fs ............................................. 15
3.1 Chhattisgarh ....................................................................................................... 15
3.1.1 PRI Structure..................................................................................................... 15
3.1.2 Devolution of 3Fs; Indicator Matrix ...................................................................... 16
3.1.3 Innovations ....................................................................................................... 22
3.2 West Bengal........................................................................................................ 24
3.2.1 PRI Structure..................................................................................................... 24
3.2.2 Devolution of 3Fs ............................................................................................... 25
3.2.3 Innovation ........................................................................................................ 34
3.3 Odisha ................................................................................................................ 37
3.3.1 PRI Structure..................................................................................................... 37
3.3.2 Devolution of 3Fs; Indicator Matrix ...................................................................... 38
3.3.3 Innovations ...................................................................................................... 45
3.4 Rajasthan ........................................................................................................... 46
3.4.1 PRI Structure .................................................................................................... 46
3.4.2 Devolution of 3Fs; Indicator Matrix ..................................................................... 46
3.4.3 Innovations ...................................................................................................... 54
4. DEVOLUTION OF 3Fs IN JHARKHAND .............................................................. 55
4.1 PRI Structure ...................................................................................................... 55
4.2 Devolution of 3Fs ................................................................................................ 55
4.3 Primary Findings from Block and District Visit ............................................................. 62
4.4 Primary Findings from Gram Panchayat ................................................................ 65
5.1 Learnings from State Findings .............................................................................. 74
List of Tables
Table 1: Details of Panchayat Election conducted in 2015 ....................................................4
Table 2: Data Collection Group .........................................................................................12
Table 3: Devolution of Functions to Chhattisgarh PRIs ........................................................16
Table 4: Fund Allocations during 2016-17; Chhattisgarh PRIs ..............................................18
Table 5: Beneficiaries of Hamar Chhattisgarh Scheme ........................................................21
Table 6: Composition of Elected Representatives; West Bengal ...........................................23
Table 7: Status of Devolution of Functions to PRIs; West Bengal .........................................23
Table 8: Functionaries of PRIs; West Bengal ......................................................................26
Table 9: SFCs commissioned in West Bengal ......................................................................29
Table 10: Status of Devolution of Functions to PRIs; Odisha ...............................................35
Table 11: Devolution of Functionaries to PRIs; Odisha ........................................................36
Table 12: Fund allocations to PRIs in Odisha (2015-20).......................................................39
Table 13: FFC Grant Share to GPs ; Odisha ........................................................................39
Table 14: Status of Devolution of Functions to PRIs; Rajasthan ...........................................42
Table 15: Status of Devolution of Functionaries to PRIs; Rajasthan .....................................45
Table 16: Fund Allocations to PRIs 2015-16; Rajasthan ......................................................46
Table 17: Functions of PRIs w.r.t MGNREGA; Jharkhand .....................................................50
Table 18: Functions of PRIs w.r.t Primary Education; Jharkhand .........................................51
Table 19: Devolution of Functionaries w.r.t Primary Education to PRIs; Jharkhand ...............52
Table 20: Roles of PRIs w.r.t ICDS; Jharkhand ..................................................................52
Table 21: Roles of PRIs w.r.t Health Department; Jharkhand ..............................................54
Table 22: Devolution of Functionaries to PRIs w.r.t Health Department; Jharkhand ..............54
Table 23: Maintenance of Records by GPs .........................................................................58
Table 24: Availability of Funds with GPs ............................................................................59
Table 25: Functions performed by GPs ..............................................................................59
Table 26: Role of Gram Panchayats in Important Schemes ................................................60
Table 27: Parallel Bodies and GPs .....................................................................................61
Table 28: Government Bodies and GPs ..............................................................................62
Table 29: GP Staff Structure .............................................................................................62
Table 30: Grants to Panchayats ........................................................................................63
Table 31: Panchayat Expenditures ....................................................................................63
Table 32: ERs Trained ......................................................................................................64
Table 33: Existential Infrastructure in GPs .........................................................................64
Table 34: Infrastructure and E-connectivity……………………………………………………………………..67
List of Figures
Figure 1: Jharkhand Map ....................................................................................................1
Figure 2: Composition of PRI system in Jharkhand ...............................................................3
Figure 3: Standing Committees............................................................................................3
Figure 4: Areas of Information Collection ...........................................................................13
Figure 5: Data Collection in Jharkhand ..............................................................................13
Figure 6: Chhattisgarh PRI Structure .................................................................................15
Figure 7: ERs of Chhattisgarh PRIs ....................................................................................15
Figure 8: West Bengal PRI Structure .................................................................................22
Figure 9: FFC Basic Grant Allocation to GPs; West Bengal ...................................................28
Figure 10: FFC Performance Grant Allocation to GPs; West Bengal ......................................28
Figure 11: Themes of Community Planning ........................................................................30
Figure 12: PRI Structure in Odisha ....................................................................................33
Figure 13: PRI Structure in Rajasthan ................................................................................41
Figure 14: FFC Grant to GPs; Rajasthan ............................................................................48
Figure 15: PRI Structure in Jharkhand ...............................................................................49
Figure 16: Gram Panchayat Meetings ................................................................................58
Figure 17: Training Frequency ..........................................................................................64
LIST OF ABBREVIATIONS
PRI Panchayati Raj Institutions
CAA Constitutional Amendment Act
PESA Panchayat Extension to Rural Areas
MoPR Ministry of Panchayati Raj
DI Devolution Index
JPRA Jharkhand Panchayati Raj Act
FFC Fourteenth Finance Commission
MGNREGA Mahatma Gandhi National Rural Employment Guarantee Act
ICDS Integrated Child Development Scheme
WCD Women and Child Development Department
SSA Sarva Shiksha Abhiyaan
NRHM National Rural Health Mission
SBM Swachh Bharat Mission
IAY Indira Awas Yojana
PMGSY Pradhan Mantri Grameen Sadak Yojana
GP Gram Panchayat
GS Gram Sabha
ZP Zila Parishad
PS Panchayat Samiti
JP Janpad Panchayat
DPC District Planning Committee
ITDA Integrated Tribal Development Agency
GPDP Gram Panchayat Development Plan
DRDA District Rural Development Authority
BDO Block Development Officer
PR&RD Panchayati Raj and Rural Development
PHED Public Health Engineering Department
SMC School Management Committee
SC Standing Committee
VEC Village Education Committee
VHSNC Village Health Sanitation Committee
PHC Primary Health Center
LS Lady Supervisor
CDPO
SFC
ATR
Child Development Project Officer
State Finance Commission
Action Taken Report
Documentation of Devolution of Functions, Functionaries and Funds to Panchayati
Raj Institutions in Jharkhand
TARU/UNICEF 1
This report seeks to provide insights on the nature, extent and scope of Devolution of Functions,
Functionaries and Funds to Panchayati Raj Institutions in the eastern state of Jharkhand along
with stating parallel evidences of the devolution paradigm functioning in the states of
Chhattisgarh, West Bengal, Odisha and Rajasthan. Post documenting the existential status of
devolution to rural local government, it puts forth a prospective series of steps to contribute to
the scope of Devolution to PRIs in Jharkhand state. Commissioned by UNICEF Jharkhand, TARU
leading Edge Pvt. Ltd executed the research assignment namely ‘Documentation of Devolution
of Functions, Functionaries and Funds (3Fs) to Panchayati Raj Institutions (PRIs) in Jharkhand’.
The assignment is set against the display of intentions and backdrop of steps taken by the state
of Jharkhand towards devolution of powers and functions to the panchayats. The task required
consultants to undertake desk-based stock of secondary data as well as analysis of quantitative
and qualitative data from state department and line departments of five states i.e. Chhattisgarh,
Odisha, West Bengal and Rajasthan, Directorate of Panchayat Raj, PRIs along with consultation
with various non-government organizations, experts of local-self-governance in the states and
bottom-up initiatives at various levels and likewise.
1.1. Preview of State Demographics
The State of Jharkhand was formed on 15thNovember 2000, the birth anniversary of the
legendary Bhagwan Birsa Munda on the terms of ensuring all round social and economic
development of the area and especially of the people belonging to the Scheduled Tribes.
Jharkhand is a land locked territory bound by the state of Bihar in the north, West Bengal on the
east, Orissa in the south and Chhattisgarh in the west. Administratively, the State is divided into
24 districts with 35 sub-divisions, 260 blocks and 32,615 villages and has a population of 329.66
million (Census 2011). About 76 % of the total population of the State resides in rural areas as
against India’s total rural population of 69% as per 2011 census. Furthermore, 59% of the total
workforce is dependent on agriculture. The State accounts for about 37% of the country’s
mineral deposits and is the sole producer of coking coal, uranium and pyrite.
1.
INTRODUCTION
Documentation of Devolution of Functions, Functionaries and Funds to Panchayati Raj Institutions in Jharkhand
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Since the tribal population constitutes a significant portion of State’s demography, agriculture
and forestry is not only the source of livelihood for over 70 % of the State’s population but it is
a way of life for them. The State has a geographical area of 79.70 lakhs ha. About 23.6 lakh ha.
(29.61%) is covered under forest and 38 lakh ha. is the area of cultivable land in the state.
1.2. Induction of PRI’s in Jharkhand
The rural local governance system in India, popularly addressed as Panchayat received a
constitutional invitation with enactment of 73rd and 74thAmendment Acts, 1992-93. These
institutions were established to prepare such plans and execute such responsibilities as to
achieve economic development and bring in social justice at the local levels. It made panchayats
the third tier of government with reasonable substance and content in terms of powers and
authority as well as creating adequate space for women and marginalised groups in the federal
set-up.1 It provided for formation of rural governments at the district, block and village levels
and provides for transfer of responsibilities and tax powers from the state government to the
rural bodiesd or Panchayati Raj Institutions. Eleventh schedule of the CAA indicates a list of 29
subjects wherein the local governments are to function and exercise authority.
These institutional set-ups have been mechanized to achieve for decentralized democracy.
Village has been categorized as the fundamental entity of functional democratic environment.
Article 243A defines a gram sabha as being a body of voters (citizens) of a village within a
panchayat. Under the constitutional pattern, gram sabhas provide the platform for citizens to
participate in local governance beyond casting their vote and partake in decisions regarding their
village and is the foundation for effective participatory self- governance or panchayat raj.e
1.2.1 Jharkhand Panchayati Raj Act, 2001
Following its Constitution as a newly formed state, Jharkhand has enacted its Panchayati Raj Act
in accordance with the provisions of the 73rd Amendment to the Constitution and that of the
PESA (Panchayat Extension to the Scheduled Areas) Act, 1996. On 10th May 2001, State Election
1 Mahi Pal (2004) EPW-‘Panchayati Raj and Rural Governance-Experiences of a decade’ d
http://fincomindia.nic.in/writereaddata/html_en_files/oldcommission_html/predocs/speech/shikha%20
jha.pdf eNANDANA REDDY, DAMODAR ACHARYA, (May 5, 2007) EPW, ‘Striking at the Roots of
Democracy’ f http://www.jharkhandpanchayats.gov.in/
Documentation of Devolution of Functions, Functionaries and Funds to Panchayati
Raj Institutions in Jharkhand
TARU/UNICEF 3
Commission was constituted and state election commissioner was nominated. First, State
Finance Commission was also constituted in 2004. In Jharkhand, out of 24 districts in the state;
16 districts- 13 districts fully and 3 districts partially have been incorporated under the PESA act2.
In these 16 districts, 136 blocks covering 2070-gram panchayats have been taken under PESA
act where the rules of the act are being implemented.
In order to strengthen Panchayati Raj Institutions (PRIs) as per the spirit of the Constitution and
the Jharkhand Panchayat Raj Act, 2001, the Department of Panchayati Raj has under taken
several schemes such as construction of Panchayat Bhawan (buildings), grants to Zila Parishad
area, construction of Dak Bungalows, Office buildings, Bus stands in Zila Parishad areas, Training
to PRIs Officials and Staffs, Grants to Gram sabhaetc is also being undertaken.3
Composition of the Three- Tier System:
Panchayat system in the state follows a three-tier structure, namely Village level, intermediate
level and district level.
Source: Department of Rural Development, Government of Jharkhand, 2013-14
For discharging these functions and duties the Gram Sabha may constitute the standing
committees as shown in below graphic.
2 http://pesadarpan.gov.in/documents/30080/45009/Jharkhand.pdf/7c90a28a-7b6b-43d0-
be866834c42937bf 3 http://www.jharkhandpanchayats.gov.in/
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1.2.2 Local Governance in Tribal Areas
On the basis of the report of the Bhuria Committee report submitted in 1995, Parliament enacted,
“The Provisions of the Panchayat (Extension to the Scheduled Areas) Act, 1996” popularly known
as PESA Act, enshrined under article 244 (2). It extends Part IX of the Constitution with certain
modifications and exceptions to the Fifth Schedule Areas notified in ten States viz. Andhra
Pradesh, Chhattisgarh, Gujarat, Himachal Pradesh, Jharkhand, Madhya Pradesh, Maharashtra,
Odisha, Rajasthan and Telangana. These Schedule areas in ten States extend in 108 districts
(45 fully and 63 partly covered)4.
PESA legally recognizes the capacity of tribal communities to strengthen their own systems of
self-governance or create new legal spaces and institutions that can not only reverse centuries
of external cultural and political onslaught but can also create the opportunities to control their
own destinies. The Gram Sabha of the village becomes the focal institution, endowed with
significant powers. For instance, under section 4(d) of PESA: "every Gram Sabha shall be
competent to safeguard and preserve the traditions and customs of the people, their cultural
identity, community resources and the customary mode of dispute resolution.”
Jharkhand holds the 6th rank in terms of Scheduled Tribe (ST) population among the India
states. It has thirty two Tribal Groups, major among them being Santhal, Munda, Oraon and Ho.
Eight out of the thirty-two tribes of Jharkhand fall under Primitive Tribal Group (PTG). Their lives
4 http://pesadarpan.gov.in/documents/30080/45009/Chhattisgarh.pdf/419ec0ef-4a40-4ab4-
97fd2d8c105a96e1
Village Development Committees
Government Estate
Committee
• Agriculture Committee
• Health Committee
• Village Defense
Committee
• Infrastructur e Committee
Education Committee and social
Justice Committee
Vigilance Committee
Documentation of Devolution of Functions, Functionaries and Funds to Panchayati
Raj Institutions in Jharkhand
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are closely associated with the nature as they eke out their livelihoods from the natural environ
– streams, trees, plants, animals etc5
Jharkhand is characterized with unique history of mobilization and assertion for ethnic identities
and control over resources and self-determination. In the quest of governing the tribal territories
the tribes evolved their own system of governance for the purpose of regulating the individual
and communal behavior of the people in the society. Jharkhand is reported to the tribal groups
having their traditional social institutions ⎯ called Traditional Self-Governance (TSG) institutions
⎯ with a strong concept of democratic participation and governance.6 Out of 259 blocks in the
state of Jharkhand, 112 fall under the Fifth Schedule areas (spread across 15 districts out of 24
districts).
1.2.3 PRI Elections in Jharkhand
Elections to PRIs were held in November- December 2010 for the first time since 73rd CAA came
into force. Three departments, namely, Agriculture, Social Welfare and Primary Education have
recently devolved functions to PRIs by Departmental Notification.7 2nd round of Panchayat
elections were held in Jharkhand in 2015. The table below represents the total number of
contestants and the details of reserved seats for women, ST and SC categories for the 2015
elections, as per the study conducted by Department of Planning cum Finance Commission of
Jharkhand.
Table 1: Details of Panchayat Election conducted in 2015
Sl.
No.
Level Total
Contestants
Reserved
for Women
Reserved
for ST
Reserved
for SC
1 Zila Parishad Member 545 281 179 66
2 Panchayat Samiti Member 5,423 2,823 1,810 650
3 Gram Panchayat Member 54,330 28,631 18,417 6,227
4 Gram Panchayat Member 4,402 2,084 2,324 250
Total 64,700 33,819 22,738 7,193
Source: Department of Rural Development, Government of Jharkhand
1.3. Theory of Devolution
Devolution has been characterised as being made up of three factors – political legitimacy,
decentralisation of authority and decentralisation of resources (Donahue, 1997). Political
legitimacy here means a mass demand from below for the decentralisation process which is able
to create a political force for this decentralisation to take place. In many cases decentralisation
is initiated by the upper tier of government without sufficient political mobilisation for it at the
grassroots level and in such cases the decentralisation process often does not fulfil its objectives.
Thus, political legitimacy arising from active mass participation at the lower level is the most
5 http://www.mdws.gov.in/sites/default/files/Tribal_Development_Plan.pdf 6 http://grassrootsinstitute.in/files/inquiry.pdf 7 http://fincomindia.nic.in/writereaddata%5Chtml_en_files%5Cfincom14/others/38.pdf
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important factor in determining the extent and success of devolution. This requires an
institutionalised democracy to be in place which provides for the free expression of people's will.
The extent of this popular demand for devolution is determined by historical, cultural, societal
and economic factors.
The next important factor is the decentralisation of authority required to be able to govern over
the subregion or community along with the decentralisation of the control over resources to be
able to exercise this authority in an effective manner. In many cases decentralisation of authority
is not accompanied by the decentralisation of resources resulting in a weak devolution due to a
lack of political legitimacy at the grassroots. Even though the CAA made detailed provisions for
devolution of powers and funds to the PRIs, it did not address the problem of the conflict that
would arise between a centralised system and a new local government system. In most places,
the political mobilisation at the grassroots level was not strong enough to take advantage of the
CAA to pressurise the state governments to devolve enough authority and funds to the
Panchayats.
Indian Constitution has not described devolution but provided an outline of it. Human
Development Report, 1993 published by the UNDP presents a core acceptable definition. It states
that of the three forms of decentralisation namely, de-concentration, delegation and devolution,
the strongest form of decentralization is devolution. It empowers decision-making powers to
local authorities and allowing them to take full responsibility without reference back to
government. This includes financial power as well as the authority to design and execute local
development projects and programmes. The said statement points out three components of
devolution namely
• Functional autonomy in respect of defined subjects for decision taking
• Financial autonomy on resource raising
• Implementation autonomy on schemes designed by them8
Along with the mention of power sharing with respect to 29 subjects stated in XI th schedule of
the 73rd constitutional amendment article 243G, the procedures of financial resource sharing by
both the State and the Central governments with the local self-governments have been initiated.
The Fourteenth Finance Commission has provided to devolve funds directly to the Gram
Panchayat. This amount is to be utilized by the panchayats to re-furbish the essential
development services at the village level. In most of the states, State Finance Commissions have
been formed and Action Taken Report i.e. directives of steps to be taken to strengthen the
current status of panchayat bodies has been prepared. Although, concerted efforts have been
executed by the state governments at the policy level to streamline the devolution theory, the
systems still need to be worked upon.
1.3.1 Powers and Functions of Local Bodies
Article 243-G vests powers in the State Governments to endow Panchayats with such powers
and authority as may be necessary to enable them to function as institutions of self-government.
Panchayats are responsible for preparation of plans and their execution for economic
development and social justice with regard to 29 subjects listed in the 11th Schedule of the
Constitution. In majority, these subjects fall into the following categories:
8 Fourth State Finance Commission, West Bengal
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Raj Institutions in Jharkhand
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1.3.2 Jharkhand’s Ranking in Devolution Study
Starting 2006, Ministry of Panchayati Raj (MoPR), undertook preparation of Devolution Index
(DI), through independent institutions. In the national study, the ranking of states is attributed
according to the extent of enabling environment created by them under the framework of
constitution for local governments to execute efficient functioning. The exercise has been an
attempt to evaluate the scenario in terms of devolution of functions, funds and functionaries by
different states and rank accordingly. The criterions identified in the research stand on two
concepts - Operationalization of Local Democracy and Support Systems constituted for the same.
a) The state of Jharkhand enacted the state Panchayati Raj act i.e. Jharkhand Panchayati
Raj Act in
2001. The state has conducted two rounds of panchayat elections since. In Devolution Index study 2015-16, Jharkhand ranks 18, out of 26 states in tier wise devolution of policy, and in practice 10th rank. While, it has shown improvement in its ranking, it is imperative to assess its actual status on ground. And a better ranking of Jharkhand may actually be reflective of a sound roll out of policies in this state. It is in this context, a ground toothing is required.
b) A glance through the methodology and sampling design adopted for this report (prepared
by TISS, Mumbai) does not lend much confidence at certain areas.
c) Further, as the ToR rightly points, there is ought to be much divergence in reported
devolution status and those in practice.
Although, the state has experienced improvement since DI report 2014-15 and though they
perform better in terms practice, is a statement on poor implementation to devolution related
policies across states in India. And a better ranking of Jharkhand may actually be reflective of a
sound roll out of policies in this state. It is in this context; a ground toothing was initiated.
1.4. Scope of Work
1.4.1 Objective
The assignment has been set against the backdrop of steps taken by the state of Jharkhand
towards devolution of powers and functions to the panchayats. In accordance with the
provisions of the JPR Act 2001, 13 of the 29 subjects have already been transferred to the local
bodies. This assignment seeks to generate evidences and inputs for the state, to come up with
Documentation of Devolution of Functions, Functionaries and Funds to Panchayati Raj Institutions in Jharkhand
TARU/UNICEF 8
required guidelines for the panchayats for operationalisation of powers and undertake functions
that have been mandated through its executive orders in past.
Along with, to document the empirical situation of the devolution of 3Fs in the state and state
solutions realign the policy guidelines to the realities on ground and move further towards
achieving local democracy.
1.4.2 Terms of Reference
The documentation exercise of devolution achieved and the prospects ahead, has mainly
addressed following, as reproduced from ToR:
• Documenting similar categorisation of roles/functions assigned to PRIs-monitoring,
execution, supervision, regulatory, identification of beneficiaries etc. in other states.
• Gap analysis of provisions laid down in the Jharkhand Panchayat Raj Act (JPRA), 2001
w.r.t devolution of 3Fs to the PRIs and the devolution done by different departments
through executive orders. Assessment of Funds, Functions and Functionaries that can
be devolved to each tier of PRIs (both numbers & narrative) in Primary, Secondary and
Tertiary Sectors and recommendation for improvement.
• Mapping of role of the Panchayat as an institution with various committees at the local
level and the role of the Panchayat in managing institutions at the local level to be
examined with special focus to GP Planning and the status of GP development plans.
• Review and suggest mechanisms in the State for improving the basic services provided
by local governments in the light of substantive funds being made available to the local
governments under the Fourteenth Finance Commission and explore funding options
from Own source of revenue, State finance commission etc.
• Mapping and segregation of functions across various tiers of Panchayati-raj in select
sectors like education, health, employment generation (specifically MGNREGA) and the
mechanisms of intertier co-ordination.
• Assess the initiatives for own fund mobilisation, capacity building of Panchayat level
functionaries, infrastructure and mechanisms for transparency and improving
accountability.
• Comparative analysis of devolution of 3Fs across PESA and Non PESA districts, with
special reference to improvement of basic health services for children and women.
• Facilitate consultation with the departments having devolved their powers through
administrative orders and incorporate departmental priorities in the functioning of the
panchayats.
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Raj Institutions in Jharkhand
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2.1 Approach to the Study
The inception meeting initiated the study, and detailed out the scope of the assignment in terms
of the expectations from the task and the focus points for the consultant. Primarily, the highlights
include9-
• It is pertinent to have a cross-state comparison in respect to devolution of Functions,
Funds and
Functionaries to Panchayati Raj Institutions (PRIs) executed by other neighboring
states- Rajasthan, Chhattisgarh, West Bengal and Odisha
• Mapping of devolution of 3Fs to three tiers of PRIs in select key sectors like education,
health, livelihoods, water & sanitation, MGNREGA should be focused upon.
• The opinion of different departments who have so far devolved 3Fs to PRIs and all
other department’s view on devolution of 3Fs to PRIs should be taken. In this regard,
a letter from PRI division was sent to all departments to support the research team of
TARU for data collection and gathering of information related to devolution
• The sample size was reduced as it didn’t contribute much towards improving the data
quality. The study pertains to devolution status which is a policy subject matter and
would probably be same across GPs. Hence, it was agreed on reducing the sample size.
2.2 Understanding of the Task
In the light of the above stated scope of the assignment and our own sectoral understanding of
the PRI domain and its evolution over the period, the strategic import of the task may be noted
as the following:
a) The state of Jharkhand has constantly remained in the bottom half in the ranking of
states on ‘Devolution Index report’ prepared in recent years. While, it has shown
improvement in its ranking in the report brought out for 2015-16, it is
b) Imperative to assess its actual status on ground. A glance through the sampling design adopted for this report (prepared by TISS, Mumbai) does not lend much confidence. Further, as the ToR rightly points, there is ought to be much divergence in reported devolution status and those in practice.
9 Refer Annexure-3 ‘Minutes of Meeting’
2.
APPROACH
AND METHODOLOGY
Documentation of Devolution of Functions, Functionaries and Funds to Panchayati Raj Institutions in Jharkhand
TARU/UNICEF 1
0
c) Enactment of Jharkhand Panchayati Raj Act (JPRA), 2001 has been for more than 15
years by now. It was hence quite appropriate to assess the actual status of devolution of
3Fs as recommended in the act, deviations if any from laid down guidelines. And more
importantly identify the bottlenecks in its implementation and highlight and develop on
best practices from other states.
d) PRIs across India, as in Jharkhand, are expected to be playing significant role in
implementation of a range of schemes such as ICDS, IAY/PMAY, MGNREGS, SSA, PMGSY,
SBM, NRHM, where there
is significant investment involved both in infrastructure and services. Much of this
investment is ultimately aimed at improving the socio-economic conditions of the rural
population and particularly the poorest among them. Given the poverty status of state, it
thus becomes very important to see and understand actual level and type of involvement
of PRIs in these schemes.
e) Further to the above, PRIs and specifically GPs are now receiving a significantly higher
financial grant from finance commissions. The latest Finance Commission (XIVth FC) in
its recommendation10 has proposed for a ‘basic grant’ of over 1800 thousand crores to
the GPs over the five-year period (2015-20). This amount is proposed to be distributed
exclusively amongst GPs using formula set by SFC if existent. Similarly, an amount to the
tune of 20 thousand crores as ‘Performance Grant’ have been recommended by FFC, for
distribution among GPs, subject to their performance achievements. In this backdrop, it
was interesting to see how much above-mentioned amount has reached the GPs and
what amount has been spent by these bodies. Further, if there have been any deviations
to these recommendations, what are the impediments to them? Outcome of this
assignment is thus of immense significance in this quest.
f) PRIs as local governance bodies are still new to the state of Jharkhand where the second
of the elections were held in 2015. Hence it was expected that there may be issues
around GP-level capacities, participatory planning processes, overall functioning of PRIs,
implementation of schemes and monitoring systems. These challenges may be impeding
factors to the entire schema of devolution. Hence, a formal identification of such
challenges will enable in appropriate recommendations to the state for more effective
devolution process.
2.3 Approach to the Task
Underpinnings of the proposed Approach.
Our approach to the task has been characterized by the following:
a) Extensive Review of Secondary Literature: Extensive and thorough review of
available secondary literature was pre-requisite to taking up this task. In fact, this is the
foundation of our research. The ToR also required consultants to compare the existing
status of devolution with respect to laid out act (and policy) provisions and guidelines. It
therefore becomes imperative for the adopted approach to base itself around these. As a
case in point, and regarding Fourteenth Finance Commission (FFC) recommendations, it
was prudent on research team to be well versed with its recommendations made for local
governments (PRIs to be specific).
b) Differentiating Policy and Practice: Due recognition to the existing dichotomy
between policy and practice. In this respect, we considered the following, subsequently
reflected in engagement with various stakeholders, information collection etc.
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• Comparing state policies vis-à-vis national level policies and acts e.g.
recommendations of Finance commission reports, Model Panchayat guidelines,
Jharkhand Panchayats Act 2001, Acts and policies in other states,
• To understand what all functions, fund and functionaries have been devolved- in policy
and practice
10 Source: Letter of Communication from MoPR to State PR Departments on Issue of Guidelines for
Implementation of Recommendations of FFC, 8th October 2015.
http://www.jharkhandpanchayats.gov.in/documents/6183151/0/fouteen%20finance%20comission%20%28FFC%2
9.
• It is well recognized, as also highlighted in the ToR that all policies may not actually
translate in to practice. To illustrate it further, for example, functions may have been
transferred in the state but the PRIs may not actually be able to discharge those
functions.
c) Comparing Status between PESA and Non PESA PRIs: A significant aspect in
our task approach has been to capture information (and subsequently analyse them) from
the lens of PESA/Non PESA status of PRI bodies. This reflects in research tools designed
by us. Further, the team, which anyways is, has been well versed with the provisions of
the act and applied its knowledge while engaging with various stakeholders and
assessment of data collected. The idea was to establish correlation of PESA status of PRI
body to its performance status on parameters of devolution, and identify attributing
factors.
d) Mapping 3 Fs within: As part of information analysis, the consultants have tried to
assess if all the 3 Fs i.e. function, fund and functionary are commensurate with each
other. These has been with respect to entire range of functions that have been devolved.
This helped us understand if devolved functions are matched with adequate (and timely)
fund and functionary allocations.
e) Assessing Other Enabling and Support System: For a policy to effectively
translate in to practice, it requires to be backed with other enabling conditions/ support
systems. This could be in terms of capacity building of PRI staff, required infrastructure
support etc. It is our own study during the assignment on preparation of ‘Status of
Panchayati Raj Report, 2010-11’ for the neighbouring state of Bihar identified existing
capacity gaps among PRIs as a major bottleneck, reportedly primary reason for
withdrawal of several functions from the PRI ambit.
f) Documenting Policy and Practices from other States: Review of secondary
literature is expected throw up examples from other states in the context of devolution
of 3 Fs. These have been brought up to highlight policy and practices in these states and
identify aspects worth emulation in Jharkhand context.
g) Studying linkages with other local institutions and parallel bodies: This has
been another key aspect our approach, as such linkages and its nature have a lot of
bearing on very spirit of devolution.
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h) Focus on identifying scope of augmenting own source revenue: FFC in its
report has laid substantive focus on encouraging panchayats, backed by favourable state
policies, to augment their own source revenue. Reports and studies in past have identified
multiple reasons that afflict its realization across states. Some of these are:
Recommendations of different State Finance Commissions and experts to the states to
encourage expansion of own source domain of PRIs have not been duly heeded, states
have not been proactive through its policy reviews on revising rates for own sources-
often the guidelines are complete or comprehensive, PRIs have not been mobilized
enough to levy taxes, required support in terms of manpower, administrative support is
often found missing, local political interests, transfer of assets to local PRIs are some of
the major reasons. Interaction with PRI members and staff during the assignment will lay
adequate focus on this aspect.
2.4 Research Tools
a) Review of Secondary Literature - Playing by the tune of the assignment, a large
portion of the study involves extensive rallying of literary texts. Framework of which had
been developed.
b) Semi - structured Discussion Checklist – To cater to our stakeholder interactions,
(to capture both qualitative and quantitative information). Each of the stakeholder
category had this tool specifically developed for them.
c) Panchayat Data sheet: This primarily helped in collecting quantitative information from
various PRI bodies and capture information such as those related to finances, no. of
functionaries, meetings, list of functions devolved etc.
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2.5 Information Collection and Stakeholders
Stakeholder Representation for Jharkhand
The stakeholders are divided into three groups - primary, secondary and tertiary. The Gram
Sabha members at the village level/ Panchayat, line department/ extension workers form the
primary stakeholder groups. Similarly, at the block level and district level, officials of Government
and line departments, BDO, ZP/DRDA, panchayat elected representatives are under the purview
of the secondary stakeholder groups. The State level officials of the department of Panchayat,
the UNICEF are coming under the tertiary stakeholder group. The stakeholders from whom the
data gathered/ generated are mentioned in the following table: Stakeholders for Data
Collection Group
Group Status
Primary At the GP-level (in each of the 10 GPs)
• Representatives of the GP Representatives of the GS
• Representatives of the Standing Committees
• GP-level staff
• Line department extension workers/ functionaries transferred to
Panchayat
Secondary At the District-level (in proposed districts)
• AEO, ZP/DRDA (if still existing not merged with ZP)
• DPRDO
• DPC and District Planning Officer
• Nodal officers in charge of MGNREGS and Drinking Water Supply
• Line department officials of other departments like agriculture, animal
husbandry, Minor Irrigation, horticulture (to assess convergence and
decentralization aspects) NIC centers at district levels
Tertiary At the State-level
• PRDD, RDD, WCD, Education Deptt., Health
• UNICEF Staff and representatives
• NIC centers at the state
• SIRDs, Nodal Training Institutes for PRIs
2.5.1 Stakeholder Representation for Stakeholder Consultation in other
States
Across the proposed 4 states i.e. Rajasthan, Odisha, West Bengal and Chhattisgarh, to
understand the Nature of Panchayati Raj Institutions; Policy, Planning and Implementation
Practices in devolution of 3Fs, we have identified the major stakeholder departments/ groups
from whom the data will be gathered/ generated:
• PME Officer, UNICEF
• Department of Health & Family Welfare
• Department of Women and Child Development
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• PHED Department
• Department of Panchayati Raj and Rural Development
• Department of School Education
• Agency/Institute who has experience of working at the GP level.
2.5.2 Purposive Information Collection
Primary information collection for the study was phased to occur in two; State-level data
collection and Gram Panchayat Level data collection. Four states were identified by the
assignment commissioning body apart from Jharkhand wherein detailed discussions at multi-
stakeholder platforms were initiated.
During the inception meeting on 11.04.2017 and subsequent discussion with UNICEF and
Department of Rural Development, it was decided that the sample size of GPs in the state of
Jharkhand can be reduced as it won’t contribute much towards improving the data quality.
Hence, we revised the sample size (Total number of districts: 2, Total number of GPs: 10, 5
panchayats per district) for primary data collection in Jharkhand is presented in below graphic:
The distribution caters to inclusion of both PESA and non-PESA districts for a holistic
understanding. One district is identified as PESA district; West Singbhum and another as non-
PESA; Deoghar. In each of the above-mentioned sample units i.e. district and GP, the research
team interacted with all relevant stakeholders as described in stakeholder list in earlier section.
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3. STATE LEVEL FINDINGS ON DEVOLUTION OF 3Fs
3.1 Chhattisgarh
Chhattisgarh state was formed from the sixteen southeastern districts of Madhya Pradesh in
November 2001. After its disintegration, as per the Madhya Pradesh Re-organisation Act 2000,
sections 78 and 79, to institutionalize the Local system of governance, the state borrowed the
legislative arguments of Panchayati Raj from the parent state, as a transitory arrangement.
Locally referred to as Chhattisgarh Panchayati Raj Adhiniyam 1993 and then renamed as
Chhattisgarh Panchayat Raj (Sanshodhan) Adhiniyam, 2017 [G0: 3769/D.85/21-
A/Praru./CH.G/17; Dated-17/04/2017]. Since then, the state has been an avid implementer of
the Act.
In terms of the Devolution policy or status of roles, responsibilities and financial powers to local
governing bodies, a comprehensive activity mapping or study putting the current scenario in
perspective hasn’t been carried out despite initial efforts of Panchayat and Rural Development
Department. Although the State government had initiated a few minor modifications in the
statutory provisions of the MP Panchayat Raj Act 1993, in form of Government Orders defining
Own Source Revenue collection, educational qualification for people contesting elections,
Standing Committee formation and meeting process and guidelines for participatory planning via
Gram Panchayat Development Plan have been issued to strengthen the grassroots institutions
the existing scenario governing the Functional and Fiscal domain of the Panchayats in the State,
by and large, is a replica of the MP model as it existed at the time of formation of the new State.
3.1.1 PRI Structure
Since the introduction of three-tiered Local Government structure in undivided MP state,
Chhattisgarh has had panchayats at the village, block and district level. Three - tiered structure
of governing local bodies and number of elected representatives is presented in below graphic.
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Source: State Level Consultation & Administrative Report 2016-17
Elected Representatives:
Major amendments have been brought out by the state machinery from 2004 and the state
elections for the Panchayat have been conducted thrice since state formation i.e. in 2005, 2010
and 2015. Woman representation is presented in below graphic.
Source: Administrative Report 2016-17
The state incorporates 55% of women elected representatives in Panchayats.
3.1.2 Devolution of 3Fs; Indicator Matrix
In principal, the state has actively devolved Functions from the 3F’s concept with 22 subjects
partially or fully stationed in either of the three-tier’s kitty of Panchayats, but only little can be
said regarding Funds and Functionaries. Interestingly, the role to be played by panchayats was
greater when Chhattisgarh state was formed, but eventually departments such as Health
withdrew the resources and administrative powers from local bodies due to capability restrictions
of Gram Panchayats. Majority of the role for Panchayats for the devolved subjects is thus limited
to Monitoring. Also, although the powers/functions/roles/responsibilities have been mentioned
in the directives issued by the state, no clear demarcations on the components of what it entails
or how to go about it have been framed. The gap also exists in illustrating reporting or feedback
mechanisms to be followed by panchayats.
Although, Gram Panchayats technically are responsible for monitoring all the development
programmes/schemes being implemented by center-state; their role is being challenged at two
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levels; bypassing of their inputs, comments, considerations by the line department officials,
second being lack of conformity to their ideas and intentions per se.
Subsequently, drawn from the discussions and documents shared, the Indicator Matrix in terms
of devolution of 3Fs w.r.t 5 departments can be sketched as follows:
Devolution of Functions
S .No Department GP Level Janpad Level Zila Level
1. Health &
Family
Welfare
• Land selection for construction of health centres
• Supporting and monitoring immunization activities Monitoring the sub-health sectors and primary health centres
• Suggesting names of
ASHA members
Facilitating
activities related to health and family welfare Monitor the ASHAs
2. School
Education • Construction of Primary
schools with separate toilets for girls and boys
• Ensuring education/school facility at primary level by organizing house-visits, community meeting etc
• Painting and maintenance of Primary schools
• Providing and ensuring utilization of educative materials and equipment eg. black-board, playful equipment etc
• Accepting scholarships and distribution
• Distribution of books and uniforms Maintenance and evaluation of mid-day meals
• Observation and maintenance, paint of Secondary schools
• Monitoring of book-bank and library
• Evaluation of
Primary and
• Secondary schools Collection of GP education plan and preparing a block level education plan
• Appointment of
Shikshakarmis
class 3 and
monitoring them
• Monitoring of all district schools
• Appointment of class 2
and
3 shikshakarmis
• Preparing District level school education plan
• Cadre management
Monitoring of all
education related
activities taken up by GP
and Janpad.
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• Monitoring of Primary
school staff and
teachers and reviewing
their performance
report for salary release
S .No Department GP Level Janpad Level Zila Level
• Getting disabled and girls to attend primary school Preparing an Annual Action Plan for Primary education
• Supporting other Govt.
schemes related to
education eg SSA
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3. Women &
Child
Development
Department
• Looking after the local nutrition needs
• Selection of village area for construction of anganwadi centres
• Infrastructure development
• Observation and
evaluation of
anganwadi centres
• Appointment of Anganwadi workers and helpers
• Observation and
evaluation of
anganwadi
centres
• Facilitating home-center facility to orphans Swings for children
• Nurseries for children
• Women awareness centres
• Excursions Chhattisgarh
Government Women Fund Scheme
• Observation and
evaluation of anganwadi
centres
4. Panchayati
Raj & Rural
Development
Department
• Construction of basic infrastructure in village; roads, footpaths Streetlightning
• Maintenance of community resources
• Water-supply Sanitation
• Sewage and solid-waste management
• Maintenance of burial grounds
• Identification of beneficiaries for various schemes
Source: State Level Consultation
Devolution of Functionaries
Devolution of functionaries for Panchayat Institutions has been the state’s concern since
formative years. As per the PRIA study on ‘Status and Functioning of PRIs’, published in 2012,
the state was to induce functionaries in the system after Activity Mapping, a pending process.
Though, state government has given some powers to the ZPs and JPs to recruit personnel in the
department like health (ANM/ Mitanin), education (Siksha Karmi), Women and Child
Development (Sahyogini), and also are to look after their remuneration. The role of GPs and
Gram Sabhas has been limited to monitor and report on their performance, a role that is being
surpassed by review of witnessing the field (primary data).
Devolution of Funds
In terms of direct transfer of funds, no department has opened a Panchayat Window in
Chhattisgarh. Following the 1998 order, each department whose functions were devolved, have
been earmarking few schemes relating to these functions and devolved funds relating to these
schemes into the budget heads. However, it has to be ascertained whether this allocation
actually matches the range of functions devolved to Panchayats in the State.
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Fiscal resources are allocated to local rural bodies as per the recommendations of State Finance
Commission and also various other central and state schemes. The 14th Finance Commission has
juxtaposed an exemplary tradition of sending in direct funds to Gram Panchayat bank accounts.
This money is provided in two – the Basic Grant and the Performance Grant. Within which 90%
is to be basic and 10% performance based. The system suggests utilization of grant by the
panchayat bodies to support and strengthen and improvise the quality of basic services within
the devolved functions by State.
Likewise, the Action Taken Report (ATR) of 2nd SFC (2012-13 to 2016-17) is a part of
implementation policy, though 3rd SFC report is under review, no mandate has been
subsequently formed to put it into action. Budget under Panchayat Directorate for 2016-17.
S. No Scheme Funds
allocated (in
Lakhs)
1. Rural Development Authority 6,403.60
2. Infrastructure development (bhawan ) 675.00
3. Chief Minister Rural Development Scheme 57,000.00
4. Chief Minister Panchayat Empowerment
Scheme
1,800.00
5. Zila Panchayat Vikas Nidhi 4,500.00
6. Panchayat Directorate 142.91
7. Basic Services of Gram Panchayat 30,000.00
8. Basic work of Zila Panchayat 570.00
9. Panchayat’s window from collected
entertainment tax
330.00
10. 14th FC 88,682.00
11. Hamar Chhattisgarh 1,500.00
Source: Administrative Report 2016-17
Participatory Planning
Gram Panchayat Development Plan (GPDP) is a strategic attempt by the central ministry to
improvise on the idea of participatory planning. Eligibility for funds is nodal around preparation
and presentation of GPDP for all the states. Likewise, Chhattisgarh Panchayati Raj Department
has designed a manual around GPDP for Gram Panchayats to implement. The exercise is
extensive and is an attempt to diagnose the basic priority needs to achieve ‘social and economic
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security’. As GPDP is an annual exercise, currently in Chhattisgarh, trainings have been held and
manual on how to engage in participatory planning has been distributed. For the 2016-17, 9929
panchayats are on Plan Plus, 468 panchayats have uploaded their plans, for 268 panchayats the
plans have been manually prepared but are yet to be included; while 19 panchayats are in
process of organizing gram sabha meetings and for 26 have prepared the plan but are yet to get
the approval. 3085 panchayats have commenced implementation of GPDP.
Also, as per the stakeholder feedback, as a practice, most of the decision making is still dictated
from the top and very little discretion is exercised by the panchayats in choosing their discourse
of development. GPDP has the potential to augment the rooted culture of participatory
development.
Own Source Revenue
By Law, there are 6 taxes to be imposed by Gram Panchayats these include market fees, village
assets like buildings, ponds, phone and tv towers; with other optional sources as tonga, bullock
carts, water tanks, rickshaws, animal center etc.
Audits
Along with the traditional systems of auditing like Local Fund and by Auditor General, the state
is placing structures of Internal Auditing. The High-Power Committee is having discussions
around constituting a cadre of Sahayak; 1 per 5 GP, then 1 per 25- GP and 1 at Janpad Level,
to institutionalize a system of Internal Auditing. This is to bring in transparency and strengthen
the PRI.
Standing Committees
The state provides for inclusion of at least two technical/subject experts to be a part to the
Standing Committees. By lawful provision, 5 Standing Committees are to exist at GP level, with
minimum of 5 Standing Committees at Janpad and District level, and more committees can be
formed at the discretion of Collector at both Janpad and Zila. As per primary data, functioning
of Standing Committees in the state has been irregular. Specifically, at the Gram Panchayat level,
the role of committees is very limited.
Capacity Building and Auditing
The State Institute of Rural Development provides demand based training sessions, after carrying
out a need- based assessment. The training schedule of elected representatives can be broadly
viewed as-
1) Fixed/compulsory Orientation course conducted under 6 months of office acquisition
(duration – 5 days)
2) Annual Refresher Course; carried out yearly (duration – 3 days), 2nd refresher carried out
for 2 days
3) Scheme specific trainings are organized as and when it is required
4) Subject experts are empaneled for the trainings
In the state to provide for the training infrastructure there is presence of 1 Extension Training
Center and 5 Panchayat Training Centres.
Soft-wares such as PRIA soft and Plan Plus are used by the three-tier panchayat system to
upload the plans and update accounts.
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State Finance Commission
The XIth schedule of the 73rd Constitutional Amendment made provisions for the creation of
institutional framework for inclusion of Panchayats as constitutional governing bodies, this had
a clause of formation of State Finance Commission. The first SFC for the bifurcated state of
Chhattisgarh was constituted in August
2003 and the Second SFC was constituted in July, 2011. The Third State Finance Commission
has been conceptualized and is functional since 2016. Although, the state accepted the
recommendations of the Second SFC, no ATR has been framed around it yet.
3.1.3 Innovations
The Chhattisgarh Panchayat Raj Department has formulated and adopted certain resolutions to
make the Panchayat structure more effective. Certain innovative legislatures issued by the state
department includes:
1) Presence of flush toilet in the house of person contesting
elections
2) Minimum eligibility criteria for contenders for Panchayat
Elections:
• 5th standard examination for the post of Panch
• 8th standard or equivalent examination for office bearer above Panch
3) Respect for the elected candidates - By statute, none below the class II Gazetted Officer,
can call in an enquiry for the Sarpanch.
4) Encroachment of public areas will lead to disqualification of candidature
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Panchayat Samagra Vikaas Scheme:
The chief minister Panchayat Samagra Vikaas scheme is to focus on development of village based
assets that become a source of revenue generation for panchayats. It includes:
Construction of Mini-Stadiums in every Panchayat, for youth to develop a healthy lifestyle
Construction and maintenance of Samudayak Bhawans/Community Centres; as places of
common community meetings, meetings for helping youth in taking leadership roles etc.
Construction of shops for Village Commercial Complex for Village – based Enterprise
Development. Identification of beneficiaries for distribution of shops is done by Gram
Sabha
Nirmala Ghat – To create a safe environment for the women in villages, all the common
bathing places/ghats have on their corners, walled structures constructed for the women
to use for clothes changing purposes.
Bringing in convergence with SBM, all anganwadi centres have child-friendly toilets
constructed.
Ongoing development - In the GP bhawan, toilets for the third gender to be constructed
Radio sets are made available at GP bhawan for people to collectively participate in
listening the Prime Minister’s, ‘Mann kiBaat’ programme, every last Sunday of the month
and State Chief Minister’s, ‘Raman ke Gudd’ every 2nd Sunday of the month
Hamar Chhattisgarh
A state sponsored scheme; Hamar Chhattisgarh was flagged on 1st July 2016. The objective of
the scheme being to lend exposure to representatives of panchayats on the thematic of
development. By default, the elected representatives and other panchayat functionaries,
although are aware about the development schemes and practices of their residing areas, they
should get a flavor of the macro developmental projects being implemented in other places.
Therefore, they are to visit the state capital and communicate their learnings to the village
populace. As per the scheme target, 1Lakh 70 thousand panchayat representatives are to benefit
from this. Participation of 11,000 Gram Panchayat, 146 Janpad Panchayat and 27 Zila Panchayat
will be ensured under the scheme mandate.
As per the Administrative Report 2016-17, the beneficiaries under the scheme till December 2016
include:
Category Participation
Numbers
Total number of Panchayat
representatives
31,660
Total number of female
representatives
11,340
Total number of male representatives 20,320
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3.2 West Bengal
The state of West Bengal has generated exemplary evidences of institutionalizing an efficient
model of local governance. It naturally carries with itself a legacy of empowering the rural model
of development with the help of Gram Sansad (the first level of democratically elected local
body) and has kept up the good score in terms of devolution practice. As suggested by Mr. D.K.
Pal of PR& RD Department, “West Bengal has always had the objective of strengthening the
panchayat institutions, so that decision –making can always rest as per their interests.”
As per the primary data, the eastern state has invested primarily in rearing an enabling
environment for panchayat systems to develop themselves and practice efficiency. Also, has
been in the top ladder and role model for other states, for the concerned subject. To date, the
perceived problems related to the PRIs include a lack of fiscal decentralization to the PRIs, lack
of untied and own source revenues and expenditure authority, limited capacity especially at the
GP level for meeting public service demands.
PRI governance in Bengal has evolved through a series of acts; The Village Chaukidari Act
(1870), The Bengal Local Self-Government Act (1885), The Bengal Village Self-government Act
(1919), The West Bengal Panchayat Act (1957), The West Bengal Zila Parishads Act (1963) and
The West Bengal Panchayat Act (1973) which established the three-tier system and use of party
symbol in local elections.
The bulk of reforms have been taken up by the state government around 2003-2004-2005. Along with the national document on a perspective plan for rural governance, the state has prepared a visionary roadmap for itself in 2009. Thus, making its Panchayati Raj institutional approach a model to look at.
3.2.1 PRI Structure
Although the West Bengal Panchayat Act states prevalence of a three-tier panchayat framework,
the fundamental unit is composed of the Sansad or legislative bodies at village level. In addition,
there is a fourth tier, the gram sansads (GS, village level parliament) and their gram unnayan
samities (GUS, village development committees), which are active participants in setting budget
priorities and carrying out projects in some GPs.10
Structure of governing local bodies and number of elected representatives is presented in below
graphic.
10 http://scholarworks.gsu.edu/cgi/viewcontent.cgi?article=1095&context=icepp
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Elected Representatives
As per the 8th Panchayat General Elections cycle held in the state in 2013:
Category Gram
Panchayat
Panchayat Samiti Zila
Parishad
Elected representatives 49055 9283 832
Elected women
representatives
24471 4632 415
Elected SC representatives 12267 2188 208
Elected ST representatives 2968 566 54
Source: State Level Consultation
3.2.2 Devolution of 3Fs
In West Bengal, 28 subjects have been transferred to Panchayats, this is illustrated in detail by
the Activity Mapping (since redrafted) worked out by P & RD Department, focusing on 5 target
departments
Status of Devolution of Functions to different tiers of Panchayats:
S.No Department Zila Level Panchayat Samiti
Level
Gram Panchayat
Level
Source: State Level Consultation
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1. Health &
Sanitation
• Lifting of materials from State headquarters and supply to different blocks
• Compilation of reports and returns from Blocklevel and analysis for monitoring crucial public health indicators
• Developing IEC materials
• Fund allotment, monitoring and supervision of immunization program including pulse polio
• Development of
infrastructure for
Institutional delivery
• Maintenance of
BPHC
& PHC
• Local Purchase of non-medical items required by the PHCs
as may be authorized
by H&FW department.
• Compilation of monthly reports from Sub-centers and GPs, and analysis for monitoring crucial public health indicators
• Planning and organization for IEC activities Implementation of
immunization
programme
Promotion of
• Maintenance of Sub
Centres
• Local Purchase of nonmedical items required by the subcenters as may be authorized by H&FW department
• Involving Self-Help Groups in monitoring community health Disease surveillance to pre-empt outbreak, preventive measures against spread of communicable diseases
• Mobilization of people for immunization
• Promoting planned
family norms and
practices Awareness
camp for family
S.No Department Zila Level Panchayat Samiti Gram Panchayat Level
Level
Organizing
sterilization camp
for eligible couple
Institutional delivery
Organizing training
ofTraditional Birth
Attendants (Dai)
planning and
sterilization
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2. School
Education
• Identification of school less mouzas / hamlets in district for preparation of status report
• Preparation of action plan for organizing SSK / MSK in district
• Supervision / monitoring and report collection through DISE
• Release of fund for salary of teachers of SSK / MSK
• Collection of proposals for new SSK / MSK from GPs and sending the plan to ZP for approval
• Construction of
SSK
/MSK from SGRY / RIDF / Untied fund/OSR etc
• Collection of
information
through EMIS &
DISE and analysis
of information
• Identification of school less mouzas / hamlets for opening SSK / MSK and sending proposal to PS
• Construction of SSK/MSK through own fund / SGRY / Untied fund / local contribution and fund received from PS
• To supervise
attendance of
teachers and
students, quality of
mid-day-meal,
distribution of books
3. Welfare of
Women and
Children
Monitoring &
Supervision of Anganwadi centres
and convergence of
activities
• Supervision of construction of
• Anganwadi Centers
• Recommendation of sites for Anganwadi Centers and construction of Anganwadi Centers
• Convergence of
ICDS activities
and reporting of
functioning of
Anganwadi
Centers in the
convergence
meeting at GP
level
4. Drinking
water
• Formulating major water supply schemes
(Pipe water supply)
• Technical approval of schemes beyond the competence of Panchayat Samitis
• Execution of schemes
beyond the
competence of
Panchayat Samitis
• Selection of location & beneficiaries for pipe water scheme in consultation with GPs Seeking technical approval from ZillaParishad for projects beyond the competence of Panchayat Samitis
• Execution of
schemes
• Identification of schemes and locations
• Construction of wells, tanks, Tube Wells (Ordinary Hand Pump)
• Repair of TWs and
periodical chlorination
of open wells and
disinfection of Tube
wells
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(DTW / Mark-II /
Tara Hand Pump)
beyond the
S.No Department Zila Level Panchayat Samiti Gram Panchayat Level
Level
competence of Gram Panchayats
Handing over
scheme to GP / User Committee for day
to day maintenance
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5. Panchayati
Raj and
Rural
Development
• Manage or maintain any institution for promotion of livelihood, education, health, communication, tourism or work of public utility including auditorium, dispensary, diagnostic clinic, bus stand, guest house, ecopark, constructed by it or vested in it for control and management
• Management of road side land Fixing and collection of toll, fee, rate as user charges
• Power to acquire, hold and dispose of immovable property with the approval of State Govt.
• Construction & upgradation of roads / culverts exceeding Rs.10.00 lakhs
• Construction of
bridge
• Management and maintenance of any institution for promotion of livelihood, education, health, communication, tourism or work of public utility including hat, market, auditorium, bus stand, eco-park, guest house, constructed by it or vested in it for control and management
• Fixing and collection of toll, fee, rate as user charges
• Power to acquire, hold and dispose of immovable property with the approval of State Govt.
• Construction &
upgradation of
roads / culverts
amounting to Rs.
2.00 – 10.00 lakh
• Maintenance of community assets such as public tanks, ghats, public channels, reservoirs, wells, streets, drains, culverts, lamp posts etc.
• Construction and maintenance of sarais, dharmasalas, rest houses, cattle sheds, cart stands, and protection and repair of buildings or other property vested in it
• Fixing and collection of toll, fee, rate as user charges Power to acquire, hold and dispose of immovable property with the approval of State Govt.
• Construction & upgradation of roads / culverts not exceeding Rs. 2.00 lakhs
Source: Executive Order No. 6102/PN/O/ dated 07.11.2005 and No. 3969/ PN/O/ dated
25.07.2006 and No. 4769/PN/O/ dated 29.10.2007
Devolution of Functionaries
The concept of functional devolution also established the need of devolution or appointment of
staffs/officials with the three-tiers as per the need, to provide technical assistance to the elected
panchayat officials.
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Panchayat
Level
Functionaries
Gram
Panchayat
• Pradhan
• Upa-Pradhan
• Sanchalaks of Upa-samitis
• General Members (directly elected members + ex-officio members) Gram Panchayat Employees:
• Executive Assistant
• Secretary
• Nirman Sahayak
• 2 Sahayaks
• GP Karmee
Panchayat
Samiti
• Sabhapati
• Sahakari Sabhapati
• General Members(directly elected members + ex-officio members)
• Executive Officer
• Joint Executive Officer
• Secretary
• Deputy Secretary
• Block Informatics Officer
• Samiti Education Officer
• Various Departmental Officers at Block Level (whose service is placed
in PS)
• Other Staff of PS & Staff at Block Level (whose service is placed in PS)
ZilaParishad • Sabhadhipati
• Sahakari Sabhadhipati
• Karmadhyakshas of 9 Sthayee Samitis
• General Members [Directly Elected Members + Ex-Officio Members]
• Executive Officer
• Additional Executive Officer
• Secretary
• Deputy Secretary
• Financial Controller
• Parishad Accounts & Audit Officer
• Additional Deputy Secretary
• Various Departmental Officers at District Level (whose service is placed
in ZP)
• Other Staff of PS & Staff at District Level (whose service is placed in
ZP)
Source: State Level Consultation
Forest Department has placed 18 forest officials of the rank of DFO in 18 Zila Parishads
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District Land and land Reforms Officer is also ex-officio Additional executive Officer (Land
Reforms), Zila Parishad
the services of one Sub-Inspector and one Chief Inspector placed at the disposal of each
Panchayat Samiti and Zila Parishad respectively
Agri-Irrigation / Agri-Mechanical wings have placed engineers with the all three tiers
General Managers of the District Industries Centres and the Industrial Development
Officers act as officers of ZP and PS respectively
Services of ANMs and Health Supervisors placed with the GPs
Financial Devolution
For West Bengal, the fiscal system is heavily dominated by the State Government. As per the
World Bank study, the State Government raises 96 per cent of all revenues. Only about 6 per
cent of total revenues of GPs is derived from Own Source of Revenue (OSR) and 94 per cent
comes from grants and transfers, of which 70 per cent from Central Government and 24 per
cent from State Government (Third SFC Report).The revenue sources of the Panchayats consist
of:
• Own revenue
• Inter-governmental transfers in the form of tax shares, costs of assigned schemes and
grants in-aid,
• Loans from financial institutions and Government
• public contributions/donations
Own Revenue Sources
GPs can collect tax on land and building levied on the ‘annual value’ of the land and buildings.
GPs can also impose conservancy rate, drainage rate and general sanitary rate and fees for
grazing cattle on vested land, for use of burning ghat, registration of shallow or deep tube well,
license on dogs, birds and domestic animals, etc. PSs and ZPs do not have tax powers. All the
three tier Panchayats can collect tolls for use of roads, bridges, ferries vested in them or under
their management, rates as water rate, lighting rate and fees for arranging sanitary
arrangements at the places of worship, pilgrimage, fairs and melas, fees for registration of
running trade and income from assets generated by them. Since some of the tolls, rates and
fees are overlapping, the general rule is that the Panchayat at a certain tier will not levy a toll,
rate or fee if the same has already been imposed by the Panchayat at any other tier. Panchayat
bodies are given share of Entertainment Tax including Luxury Tax. Of the total amount released
by the Government, 50 per cent goes to the GPs, 20 per cent to PSs and 30 per cent to ZPs.
14th Finance Commission
In respect of West Bengal, the actual amount recommended has gone up from Rs 3793 crore
recommended by the Thirteenth Finance Commission during 2010-11 to 2014-15 to Rs 20831
crore (Basic and Performance grant) during 2015-16 to 2019-20, an increase of 449%.Basic
Grant allocations as per Fourteenth Finance Commission is presented in below column chart:
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Note: Amount in Rs. Crore; Source: Secondary data
Stipulated Performance Grant allocations as per Fourteenth Finance Commission is presented in
below column chart.
State Finance Commission
The state of West Bengal institutionalized the system of constituting State Finance Commissions.
In the current scenario, Fourth SFC is functional in the state with ATR published till Third SFC. A
major recommendation of Third SFC adopted by Government of West Bengal states that the
GOWB will increase untied funds flowing to local self-governments to 5 percent of state own net
tax revenue— approximately Rs. 800 crore, with annual increases of 12 percent.
Note: Amount in Rs. Crore; Source: Secondary data
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While the GOWB has issued strong support for many of the 3rd SFC recommendations to
increase revenue mobilization and grant funding for the PRIs, it is unclear how much of the
increased sharing will actually happen in the coming years.11
S. No SFC
Number
Notification no.
of Constitution
Report submitted ATR
published to government
1. First 1023-FB
dt.30.05.1994
27.11.1995 22.07.1996
2. Second 1770-FB
dt.14.07.2000
06.02.2002 15.07.2005
3. Third 4000-FB
dt.22.02.2006
31.12.2008 16.07.2009
Source: State Finance Commission Reports
Standing Committees
West Bengal, in its Panchayati Raj Structural Framework, accommodates 5 Upa-samitis
(Standing Committees) at Gram Panchayat Level and 9 Standing Committees at each Panchayat
Samiti and Zila Parishad level.
These committees are to function in the areas of Finance Establishment, Planning &
Development; Public
Health & Environment; Education, Information, Culture & Sports; Forestry & Land; Child &
Women Development, Social Welfare & Relief; Agriculture, Irrigation & Cooperatives; Fishery &
Animal Resources; Food & Supply; Small Industry, Electricity & Unconventional Energy at PS &
ZP Level.
For Gram Panchayat, the five Upa-samitis include- Finance & Planning; Women & Child
Development; Agriculture & Animal Resource Department; Public Health & Education and
Industry & Infrastructure.
Capacity Building
The state of West Bengal has a total of 27 Training Institutions for PRIs. For training at PS &
ZP Level being facilitated by B.R. Ambedkar Institute of Panchayats & Rural Development and
5 Extension Training Centres mainly specialized for training at GP Level. The Society for Training
& Research on Panchayats & Rural Development (1 TOT Centre & 20 DPTRCs) which is also
focused on training for GP Level.
West Bengal enables institution based face-to-face residential training and refresher training for
elected representatives and Functionaries of PS & ZP Levels in BRAIPARD, and GP Level in ETCs
& DTCs. Satellitebased training for elected representatives and Functionaries of ZP & PS Levels.
Training for elected members of GPs at Block Level. Special training of SC/ST/BC/Minority
Women members at DPTRCs. Exposure visits to leading PRIs in and outside State. Mobile
training and Hand-Holding Support at GP Level is also rendered.
11 http://scholarworks.gsu.edu/cgi/viewcontent.cgi?article=1095&context=icepp
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Accounts and Audits
In West Bengal, Examiner of Local Accounts is the primary Auditor of local bodies. Based on the
Eleventh Finance Commission recommendations, CAG was entrusted with Technical Guidance
and
Supervision/Support (TGS) over the maintenance of accounts of the local bodies and their audit,
including providing technical guidance to the Director of Local Fund Audit (DLFA). Introduction
of double entry system in maintenance of accounts with computerization of accounts have been
initiated. Internal systems of auditing have also been put in place. Grassroots level
accountability has assumed additional importance in West Bengal in view of the allocation of
funds to the Gram Unnayan Samitis.
3.2.3 Innovation
Planning & Budgeting
Participatory planning procedures have been formulated and evolved by the Panchayat and Rural
Development Department, with characteristic features to establish decentralized decision-
making.
Gram Sansad Plan based Sub-Committee wise integrated GP Plan through participatory process
under DFID supported SRD Programme in 1077 backward GPs between 2005-06 and 2010-11.
Intense GP Development Plan & Budget in 1000 advanced GPs under the World Bank supported
ISGP Project since 2010-11. GP Development Plan & Budget through participatory process in the
remaining GPs since 2011-12 – continuing with greater push through the current initiative
popularly known across the country as GPDP.
Community-based, community-managed, community-owned participatory planning process
under leadership of GPs themselves. Thrust on Human Development issues e.g. Education, Public
Health, Nutrition, Sanitation, Women’s, Empowerment, Child Rights etc. and Natural Resource
Management, Expansion of Livelihood opportunities. Thrust on participation of people in not just
planning but in implementation and monitoring as well. Thrust on 7 Sector-based and Sub-
Committee wise Integrated GP Planning.
GPFT (Gram Panchayat Facilitation Team) is formed comprising all Elected Representatives & all
Employees of the GP, all line department employees operating at the GP level and 5-7 community
volunteers including SHG from each ward. Environment Building at neighborhood through folk
arts, wall writings, Social & Natural Resource Mapping, Transect Walk, Structured Question
Survey etc. Voluntary actions with focus on no cost and low-cost activities (e.g. bringing out of
school children to schools, repairing local lanes, repairing school building Seven Sectors of GP
Planning):
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Goals are set by GPFT with focused analysis of the findings of Situational Analysis - Identification,
Quantification & Prioritization of Problems, Resources & Potentials. Envisioning session at GP
Level with what can and should be done, based on available resources - with holistic thinking
towards achieving economic development and social justice on sustainable basis and
contextualizing Sustainable Development Goals with Local geographies.
GP Plan and Budget is a single documentation exercise. Draft Plan and Budget is placed in the
meetings of all Gram Sansads and finally at Gram Sabha meeting. Draft GP Plan & Budget is
approved by the GP itself in a special meeting convened for this purpose within 31st January
.There is provision for Supplementary Planning and Budgeting – in exceptional circumstances.
Implementation starts on the first day of the financial year.
Other Innovations
Legal reforms – putting in place various rules & procedures – Administrative Rules and
Financial Rules for each tier
Improving financial management through ICT based applications developed by the state
in 2004 in functioning in Panchayats
Strengthening rural decentralization – decentralized planning; the Gram Panchayat
Facilitation Team
Capacity building, Self- evaluation; usage of satellite based training system and
interactive training material like audio-visuals
District Council – Acts as watch dog and monitor for all Panchayats of the district. Role
may be compared with that of Public Accounts Committee. Leader of the opposition in
ZP is Adhyakhsha of District Council. Upadhyakhsha and 5 other members are elected by
the members of ZP in meetings. AEO / ZP is the member Secretary and DPRDO, PDAAO
& Exe Engr. of ZP are other members. Empowered to visit any Panchayat, Books of
Accounts, registers, report returns, and field visit for development works / scheme
undertaken.
Like the Gram Sansad, Downward Accountability has been introduced at Block and
District level.
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Block Sansad constituted at Panchayat Samiti Level comprising all members of all GPs
and all members of PS – holding two meetings in a year (half yearly and annual) to review
its works and guide and advise for planning, budgeting and development works.
Similarly,ZillaSansad constituted at District level comprising all Pradhans of all GPs, all
Sabhapatis, Saha-sabhapatis and Karmadhyakshays of all Panchayat Samitis and all
members of ZP- holding two meetings Annually for the same purpose.
Recommendation of Block Sansad/ ZillaSansad are placed in the general body meetings
of concerned tier of Panchayat for taking required action.
Introduction of double entry system of accounts and full computerization of Panchayat
accounts including GP accounts by the year 2005 – different from PRIA-soft which was
developed later and West Bengal was a model
New accounts rule for all the tiers – developing a team of facilitator at the state level to
manage the change from conventional to computerized accounting in a mission mode
Legal provisions made for maintaining paper less cash books. To conduct audit using
electronic cash book
Designing new reporting format to compile category wise fund availability and utilization
and developing appropriate web-based reporting format
Transparency in the accounting system - placing the accounts before the general body
for discussion and decision support
Regular collection of data on OSR & monitoring
High weightage on OSR in assessing performances of Panchayats
Due focus on non-tax revenue, creation of income earning assets
Strong system of monitoring of collection of OSR and critical analysis for feedback
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3.3 Odisha
The foundations of Local Governance in Odisha were laid by a series of acts. Odisha Grama
Panchayat Act enacted in the year 1948 was the first legislation listing the powers and functions
of the Gram Panchayats. Subsequently in the year 1959, Odisha Zila Parishad Act was passed
and was again amended in 1961 and renamed as Odisha Panchayat Samiti and Zila Parishad Act
1961. Thus, the three tier system of Panchayati Raj Institutions was introduced in Odisha in
1961. Pursuant to the 73rd Constitutional Amendment Act,
1992, Orissa has suitably amended the existing laws relating to Panchayats, which include the
Orissa Zila Parishad Act, 1991(modified), the Orissa Panchayat Samiti Act, 1959 (modified up to
February 2005) and the Orissa Grama Panchayat Act, 1964. Under the legislation as it stands
amended, Panchayats at all the three levels have been entrusted with duties and functions with
regard to 21 out of 29 matters listed in the Eleventh Schedule of the Constitution. Additional
interesting revelation relating to the history of adoption of decentralized governance in Odisha
is the fact that it took the lead to provide reservations to women, SC and ST in 3-tier PRI system.
In tune with the spirit of the Indian Constitution, the state’s policy has evolved around bringing
in social development and economic growth to the rural areas in the state. Diversity in terrains
and cultures has been reflected to be a major challenge for the state to experience effective
functioning of local institutions. Odisha is the third most populous Indian state in tribal
population. Panchayats Extension to Scheduled Areas (PESA) was enacted in Odisha in
1996.Streamlining the functions of rural elected bodies their focus is to rest upon providing basic
services to bring in development, these include:
• Primary Education
• Primary Healthcare
• Safe Drinking water
• Sanitation and Street- lighting
• Environment Protection
• Common Property Resources (CPR) Management
Also, a Government Order passed on April 2017 establishes the Panchayat Department to be
renamed as ‘Panchayati Raj and Drinking Water Department’ also the three subjects earlier
operational under the branch of Rural Works are to be assimilated with Panchayati Raj and
Drinking Water Department:
Technical Assistance to Panchayat Samitis and Gram Panchayats
Rural Water Supply and Sanitation
Construction and maintenance of rural Hats and Market buildings
3.3.1 PRI Structure
As stated, since 1961 Odisha has been following three-tiered institutional set-up of panchayats.
The numerical strength of elected representatives is presented in below graphic.
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Source: State Level Consultation
3.3.2 Devolution of 3Fs; Indicator Matrix
The Odisha State Government has devolved 21 subjects out of 29 listed in the Constitution’s
11th Schedule with respect to 11 departments.
The Government Order of 2003 w.r.t Devolution of Powers to Panchayati Raj Institutions was
pioneering in leading the state towards the idea of devolution. As per the Annual Activity Report
of PR department, twenty one subjects of eleven Departments were transferred to Panchayati
Raj Institutions. District Level Officers, Block Level Officers and Village Level functionaries of 11
Departments have been made accountable to Zila Parishad, Panchayat Samiti and Grama
Panchayat respectively for implementation of subjects/ schemes transferred to PRIs. They will
place plan and schemes for discussion and approval in the meeting of the respective level of
PRI.12
The state level consultations reflect that although to achieve the devolution of functions, funds
and functionaries for PRIs in state, the erstwhile Panchayat Raj and Rural Development
Department took considerable steps in 2003 Order No. 6886/PS dated 4.7.2003, for
accountability at the appropriate level and devolution of functions and functionaries of various
Departments to Panchayati Raj Institutions which got restricted to policy.
During the visit of Union Minister of Panchayati Raj to Orissa in October, 2005, Activity Map for
21 activities of 9 Departments was released and Notification No. I-PS-1/05- 8430/PR dated 25th
October, 2005 was issued by the Chief Secretary and Chief Development Commissioner.
Subsequently, individual Departments have issued orders in October/November, 2005
operationalising the Activity Mapping.
The capacity and manpower of panchayats has been a big challenge for the state to take steps
towards implementation of devolution. As suggested during the primary discussions, majority
rural population of the state isn’t equipped to exercise such powers as may be vested on them.
Therefore, the state has tried to go for practice of ‘Doable Devolution’ to achieve efficacy.
12 http://www.odishapanchayat.gov.in/English/Pdf/G_EngFeb2016-17.pdf
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Devolution of Functions
S. Department
No
Zila Level Panchayat Samiti
Level
Gram Panchayat Level
1. Health &
Family
Welfare
• President, Zila Parishad can visit primary health centers, send his recommendation to the Head of the Department. President, Z.P can report about performance of the Chief District Medical
• Officer to the Head of the Department for appropriate action.
• President, Zila Parishad will sanction casual leave of Chief District Medical Officer
• The doctors of Primary health centers/hospitals will remain accountable to the Panchayat Samiti for health and family welfare schemes. Chairman, Panchayat Samiti can visit primary health centers/hospitals
• The casual leave of only Medical Officer in charge of PHC/Hospitals will be sanctioned by the Chairman of Panchayat Samiti
• As and where
necessary, report of
the Chairman, PS
regarding attendance
of doctors will be sent
Chief District Medical
Officer and E.O. of
Z.P. for appropriate
action
• Village Health Workers and ANMs will attend Gram Panchayat meeting and will remain accountable to Gram Panchayat for activities at the village level.
• Sarpanch/Naib-Sarpanch whosoever is a woman will be competent to sanction casual leave to Village Health Worker/A.N.M.
• As and where necessary, report of Sarpanch/ Naib Sarpanch whosoever is a woman regarding attendance of Village
• Health Workers and A.N.M will be sent to the Medical Officer of the
PHC/Hospital and
Chairman, Panchayat
Samiti for appropriate
action
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2 School and
Mass
Education
Department
• President, Z.P will sanction casual leave of Circle Inspector/District Inspector of Schools.
• Suggestions and
report of the
President, Z.P
will be
considered by
the Head of the
Department
promptly and
remedial
measures will be
taken
• Monitor primary education, adult education and nonformal education
• Chairman,
Panchayat Samiti
can visit the
Primary Schools,
nonformal
education and
adult education
centers
• Sarpanch can visit the Primary Schools, nonformal education and adult education centers
• The Sarpanch of the Gram Panchayat will sanction Casual leave of only Headmaster-incharge Headmaster of Primary schools.
• Sarpanch can verify the
attendance of teachers
and they can report
about absence of
teachers. Such report
will be enquired and
appropriate action will
be taken on the report
of the Sarpanch
S.
No
Department Zila Level Panchayat Samiti Level Gram Panchayat Level
3. Women and
Child
Development
• President, Zila Parishad will sanction casual leave of District Social Welfare Officer.
• Report of President, Z.P regarding performance of duties by the District Social Welfare Officer will be given due weightage by the Head of the
Department
• Monitor all social security programmes and mid-day meal
• Chairman/Vice-
Chairman whosoever is a woman will sanction casual leave of CDPO.
• The suggestions regarding smooth implementation of social security scheme and mid-day meal programme and performance of duties by the C.D.P.O and S.E.O will be sent to the
Executive Officer of Zila
Parishad and District
Social Welfare Officer
for appropriate action
• Monitor and supervise implementation of schemes
• Monitor attendance of anganwadis and report Sarapanch/Naib- Sarapanch whosoever is a woman will send report about attendance of Anganwadi Worker and such report will be considered by the C.D.P.O and
appropriate action will
be taken
Source: State Level Consultations Devolution of
Functionaries
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S.
No
Departme
nt
Zila Level Panchayat Samiti
Level
Gram Panchayat
Level
1 Health &
Family
Welfare
• Chief District Medical Officer will remain accountable to Zila Parishad for health and family welfare schemes
• Z.P can report about performance of the Chief District Medical Officer to the Head of the Department for appropriate action. President, Zila Parishad will
sanction casual
leave of Chief
District Medical
Officer
The doctors of Primary
health centers/hospitals
will remain accountable
to the Panchayat Samiti
for health and family
welfare schemes The
casual leave of only
Medical Officer in
charge of PHC/Hospitals
will be sanctioned by
the Chairman of P.S.
Village Health
Workers and ANMs will attend Grama Panchayat meeting and will remain accountable to Grama Panchayat for activities at the
village level.
S. Departme Zila Level Panchayat Samiti Level Gram Panchayat
No nt Level
2 Women
and Child
Developme
nt
• District Social Welfare Officer will remain accountable to the Zila Parishad for social security schemes and mid-day meal programme.
• President, Zila
Parishad will sanction casual leave of
District Social Welfare
Officer
Child Development
Project Officer and Social Education Organiser will remain accountable to the Panchayat Samiti for social security schemes and midday meal programme Chairman/Vice-
Chairman whosoever is
a woman will sanction
casual leave of CDPO.
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3. School and
Mass
Education
• Circle
Inspector/District Inspector of Schools will be accountable to Zila Parishad for activities relating to primary education, non-formal education and adult education in the district President, Z.P will sanction casual leave of C.I./D.I of Schools.
• Transfer- A committee comprising President, Zila Parishad,
Executive Officer, Zila
Parishad and C.I of
Schools/D.I of
Schools will take
decision regarding
inter Block transfer
of Primary School
teachers within the
Educational District.
Sub-Inspector of
Schools will be accountable to the Panchayat Samiti for activities relating to primary education, adult education and non-formal education. He will help BDO in withdrawal and disbursement of salary of primary school teachers Chairman, BDO and D.I of Schools will make transfer of primary school teachers within the Panchayat Samiti and limits of
Educational District. The recommendations of the Sarpanches will be given due weightage for transfer within the Panchayat Samiti and the request will be sent to Zila Parishad
The Sarpanch of the
G.P. will sanction Casual leave of only
Headmaster-in-
charge
Headmaster of
Primary schools
S. Departme Zila Level Panchayat Samiti Level
No nt
Gram Panchayat
Level
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4. Rural
Developme
nt
Executive
Engineer/Assistant Engineer, RWSS will remain accountable to the Zila Parishad for drinking water and sanitation programme. President, Zila
Parishad will sanction casual leave of the Executive Engineer, RWSS. President, ZP will visit the works executed by the Executive Engineer/ Assistant Engineer, RWSS. He can send a report regarding performance of the Executive Engineer/Assistant
Engineer to the
Head of the
Department who will
take appropriate
action thereon.
Junior Engineers, RWSS
will remain accountable
to the Panchayat Samiti
for drinking water and
sanitation schemes.
Report of the Chairman,
Panchayat Samiti
regarding performance
of duties by the
Assistant Engineer and
Junior Engineer will be
sent to the Executive
Officer, Z.P and
Executive Engineer,
RWSS for appropriate
action.
5. Panchayati
Raj
Department
Block Development
Officer, Addl. Block Development Officer,
Assistant Engineer and
all Extension Officers of
different Departments
will remain accountable
to the Panchayat Samiti
for works entrusted to
them. Chairman of
Panchayat Samiti will
sanction casual leave of
BDO. Casual leave of all
other officers working
in the Block shall be
sanctioned by B.D.O.
Sarpanch will send
report regarding
attendance of
Village Level Worker
which will be duly
considered by the
Chairman,
Panchayat Samiti
and B.D.O.
Source: State Level Consultations
Devolution of Funds
Primary information collected during consultations illustrates absence of Panchayat window in
the budget heads of the eleven state departments which have taken steps towards functions
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transfer. Therefore, the dominant section of funds is made available from the central and state
schemes.
State Finance Commission
The 4th State Finance Commission submitted its report to the Government in September 2014
and in February 2015, the Action Taken Report (ATR) on Recommendations of 4th SFC was taken
up.
Devolution:
• The recommended devolution amounts are Rs 1852.95 crore to GPs, Rs 498.15 crore to
Panchayat Samitis and Rs 117.75 crore to Zila Panchayats during the period 2015-20 in
the ratio 75:20:5.
• Twenty per cent extra provision for GPs under TSP areas.
• The devolved fund should be utilized by the Local bodies in areas of health services,
primary education, anganwadi, children parks and other similar development initiatives.
Amongst the Financial recommendations:
3% of the net tax revenue of the state is to be distributed amongst PRIs and ULBs in the
ratio 75:25
The total transfer limit of funds to local bodies is to be 10% of State’s net divisible pool
of tax
The devolved fund is the right of local bodies and is to be used as per their own priority
and decision
Inter-se distribution of funds amongst three tiers is to be in ratio – 75:20:05 Transfer to
Local Bodies for 2015-2020 (In Crores) in the order Gram Panchayat: Panchayat Samiti:
Zila Parishad
For maintenance of capital assets, once created under different schemes, a sum of
Rs.330.94 crore is recommended for all the GPs out of state resources to maintain village
assets during award period.
Funds have been recommended for this purpose of creating assets for enhancing own
sources of the panchayats by generating rent, lease value, license fees could be good
investments. The total in this regard at the rate of Rs.10.00 lakh per Panchayat is
Rs.622.70 crore to be met from State resources.
To encourage competition amongst GPs, two GPs in every Panchayat Samiti will be
rewarded with the rider if increase in revenue is minimum 20% over the previous year’s.
Commission recommends an amount of Rs.75.36 crore at the rate of Rs.3.00 lakhs per
panchayat.
Distribution
Head (in
Lakhs)
2015-16 2016-17 2017-18 2018-19 2019-20 2015-20
Devolution 493.77 493.77 493.77 493.77 493.77 2,468.85
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Assignment of
Taxes
438.31 539.60 620.16 672.84 730.79 3,001.70
Grants-In Aid 290.05 368.43 455.12 539.20 581.72 2,234.52
Total 1,222.13 1,347.8 1,569.05 1,705.81 1,809.28 7,705.07
Source: Stakeholder Discussions
Fourteenth Finance Commission
Money to be commissioned to PRIs under FFC:
Distribution Head (in
Lakhs)
2015-16 2016-17 2017-18 2018-19 2019-20
Basic Grant Share 955.52 1,323.09 1,528.71 1,768.44 2,389.54
Performance Grant
Share
173.55 196.40 223.04 292.05
Total 955.52 1,496.64 1,725.11 1,991.48 2,681.59
Source: FFC State wise Basic Grant and Performance Grant Report
3.3.3 Innovations
Gram Panchayat Minimalistic Plan
GP minimalistic plan focusses on the core sectors to bring in people’s development. Includes
health, education, livelihoods, drinking water and sanitation, poverty, roads and transportation,
food and nutrition etc. The genesis of the idea is to trigger development from below rather than
the usual top-down effect. In the GP planning process, participation is ensured from the village
community, representatives from various departments and elected representatives of Panchayati
Raj. With the resource envelope now available at GP level, for judicious utilization of the
resources, a GP is required to identify the felt needs of people, prioritize them, map the resources
and prepare suitable plan and projects and allocate resources judiciously based on intensive
participatory planning at local level (User’s Manual for GP Minimalistic Plan).
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3.4 Rajasthan
Rajasthan’s Panchayati Raj Act was passed on 23-4-1994 pursuant to the 73rd Amendment Act,
1992. This came into effect on April 23, 1994. Certain important amendments were made in
1999, 2000 and 2004. Whereas the state witnessed a series of reforms in terms of local
governance in the year 2010 with complete devolution of functions, functionaries and financial
resources with PRIs. The state government identified five departments in synchronization with
rural priority needs including social welfare, agriculture, education, health and medi-care and
drinking water and sanitation. Accordingly, inter-department and intradepartment consultations
were carried forward to make rural institutions autonomous.
Although post-2010, the state did accomplish a devolution insight in policy, it had a long way to
go before achieving the devolved. The face value accredited to the devolution status in the state
did categorize it as a committed entity towards decentralization. Efforts were made are still being
pursued to establish an efficient model of Panchayati Raj.
3.4.1 PRI Structure
Three – tiered structure of governing local bodies is followed in Rajasthan. The last elections
were conducted by the state in 2015. Composition level and numerical strength is presented in
below graphic.
Source: State Level Consultation
3.4.2 Devolution of 3Fs; Indicator Matrix
Although the state had devolved the functions for all 29 subjects mentioned in the 11th schedule
of the constitution, the funds and functionaries remained under the ambit of parent departments.
A series of reforms took shape in the context of PRIs in Rajasthan during year 2000, 2003 and
2008. Pioneering devolution policy was framed by the departments in Rajasthan in 2010.
Complete transference i.e. functions, funds and functionaries were placed under the local
institutions. This did earn the state an overall space in achieving devolution in true spirit.
However, current devolution status speaks a different story suggestive of actual control slipping
back to parent departments with policies existing only on paper. The component of implementing
the written word has experienced varied limitations. Reference to the above the following five
subjects major large scale devolution:
• Agriculture
• Elementary Education
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• Medicine and Health
• Social Justice
• Drinking water and Sanitation
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Devolution of Functions
S. Department Zila Level No Panchayat Samiti Level Gram Panchayat Level
1. Medicine
and Health Execution,
supervision and evaluation of all central health schemes Execution, supervision, and evaluation of all rules, orders and acts issued under medicine, health and family welfare Ensure community participation in all
national health
schemes Establish
coordination
between various
departments to
help in execution
of varied national
health schemes
Maintain records,
books, budget
and audit Execute
administrative
duties
• Medicine and health services
• Mother and child health services
• Inspection of pregnant women and childbirth services
• Family Welfare services
• Health Education
• Compilation and
communication of
government notices
Referral services
• Operations of NRHM
• Basic inspection services
• Monitoring of local dai, ASHA and other health officials
• Monitoring and supervision of PHC, medical subcentres and reporting to parent department Panchayat Samiti will identify the need for new medical centers and apprve the plan before taking it to ZilaParishad
• Land selection for
construction of medicine
centres
• Mother and childbirth services-pre-childbirth, childbirth, and post childbirth care
• Immunization
• Family welfare
services
• Basic inspection services
• Execution of all national programs at GP level
• Prevention against seasonal diseases
• Implementation of all health-related services with support from anganwadi worker and ASHA sahyogini
• Implementation of all services under NRHM
• Health awareness programmes
• Appointment of ASHA
sahyogini
S. Department Zila Level Panchayat Samiti Level Gram Panchayat Level
No
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2. Elementary
Education
• Ensure implementation, monitoring and supervision of all SSA, literacy schemes of central and state department
• Monitoring of all district schools
• Monitoring of all education related activities taken up by GP and Panchayat Samiti
• Monitoring and verification of records of all teachers
• Appointment of teachers
• Posting and
transfer
Remuneration and
other funds
• Monitoring and
verification of records of
all teachers
Appointment of teachers
• Posting and transfer from one Gram Panchayat to other within the block.
• Salary and other funds
Implementation,
monitoring and
supervision of all
elementary education
related schemes in block
• Monitoring and verification of records of all teachers
• Monitoring,
implementation
and supervision of
all elementary
education related
schemes in GP
3. Women and
Child
Development
• Appointment of Anganwadi workers and helpers/sathin
• Monitoring and supervision of anganwadi centres
• Monitoring and
implementation
of scheme at Zila
level
• Appointment of Anganwadi workers and helpers/sathin Monitoring and supervision of anganwadicentres
• Implementation and monitoring of schemes
• Taking up activities to check domestic violence, child marriage
• Nutritional supply at
block level
• Appointment and selection of anganwadi worker, sahayika, ASHA Sahyogini
• Selection of land/building for anganwadi center
• Distribution of supplementary nutrition
• Beneficiary identification
• Monitoring and
supervision of
anganwadi centres
Record attendance,
manage leave of
anganwadi workers
Source: State Level Consultations
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Devolution of Functionaries
Rajasthan state achieved an interesting breakthrough towards its devolution policy by
formulating orders that assigned functionaries to PRIs by five departments. The rules for
transference of functionaries are to be followed in the manner:
• It should be clarified that the staff that is being transferred to PR department shall receive
no direct notice/orders from its parent department. The department head/officer shall
address the notice/order which is in reference to the transferred staff to the Chief
Officer/Development Officer Zila Parishad or Panchayat Samiti and expect report from
them only.
• On transference, the staff will work as per the directives issued by Panchayat Institutions
and parent department shall not issue any orders
• For transferred role/function, the functionary should be assigned tasks as per the previous
performance or allocated work also, tasks of national importance like elections and natural
disaster can also be assigned
• Immediate Controlling Authority of the devolved staff will be Panchayat institutions
• To execute all the devolved functions by the PRI, all the staff associated with it will also
be considered as transferred, unless major changes are brought about in the tasks
• The officials or workers under the devolved officer/post shall also be considered
transferred. In case of conflict the final decision-making authority will be PR & RD
department
• Cadre Controlling Authority – Parent department will continue to function as CCA of the
transferred functionary and transference of functionary from parent department to PR
department and viceversa shall be carried forward in consultation with PR & RD
department
• Transfer Policy:
1) At GP level – For transfer of an official from one GP to another within a block, the
vested authority will rest with Panchayat Samiti administration and Standing
Committee
2) At block level – For transfer of an official from one Panchayat Samiti to other within
an district, the vested authority will rest with Zila Parishad administration and
Standing Committee
3) Inter-district transfers will be under the purview of parent department at state level
• In case of punitive charges or inspection, the services of official can be given back to the
parent department only after permission from PR department
• Parent department cannot withdraw the services of the transferred functionary without
consent of PR department
• In case of resignation/termination of services of a transferred functionary, the parent
department will be responsible to make fresh appointments
• Annual Reporting and Appraisal- Reporting and Reviewing of the performance of the
devolved staff will be taken by the concerned Panchayat Samiti/ development officer ZP
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• Attendance and leave of the devolved functionary will be recorded and accepted by the
PRI at the level
S.
No
Department Zila Level Panchayat Samiti Level GP Level
1. Medicine,
Health &
Family
Welfare
At Zila level, Chief
Medicine and Health officer/additional Chief Medicine and Health Officer
(Family
Welfare)/Deputy
Medicine and Health
Officer (Family
welfare/health)/ District
childbirth and child
health official and other
functionaries in their
departments will come
under Zila Parishad.
The annual plans will be
prepared by the
functionaries and
approved by Zila
Parishad before putting
it forward with the state
• Block Chief Medical Officer and all other officials at block level, Medical officer at PHC level and other officials will function under Panchayat Samiti
• Block Chief Medical Officer
will get the annual plan
approved by Panchayat
Samiti
• Positioned in medicine subenters, ANM, GNM, Male health worker will report to GP
• Schedule of ANM community visits, or leave and permission to leave ANM center will be levied only by Sarpanch, GP Sarpanch will be responsible to pay surprise visits to ANM centres and take can report a complaint against missing members If the ANM, GNM
or Male health officer are
not carrying out their duties
efficiently, or are not
present for duty then after
discussion in Gram Sabha,
GP will send the notice to
Panchayat Samiti and Zila
Parishad
2. Women and
Child
Development
District women
development cell should be a part of Zila Parishad
• Child Development
• Project Officer and Lady
Supervisor will execute all
their duties under
supervision and monitoring
of Panchayat Samiti
ASHA sahayogini and
anganwadi workers come under GP
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3. Elementary
Education
Department
• District Primary Education Officer and all its staff will function under ZilaParishad
• All officials under
SSA and other Literacy schemes will come under ZilaParishad
• Block Primary
Education Officer and all its staff, the teachers of all state primary and upper primary schools will come under Panchayat Samiti
• All officials under SSA and other Literacy schemes will come under Panchayat Samiti
Source: State Level Consultations
Key Observation
Here, the Devolution Policy in Rajasthan has morphed interestingly in terms of implementation.
In practice, control over functionaries and fund still remains with parent department with
exception to ICDS. For example, devolution with respect to primary education is only in policies
and not practice. Decisions such as those related to transfer and posting, grievance
management- by local community or teachers, financial management are essentially initiated
and finalized by education department which is thereupon communicated to relevant PRI tier for
subsequent issuance of office order/communication. Making it as a near puppet decision-making
authority. Key decisions such as preparation of annual budget, related fund release, transfer and
posting are still being made by parent department. Panchayat department actions such as issue
of office order, transfer of fund, are totally guided by recommendations from parent department.
Effectively, past devolution initiatives have turned out to be an exercise where practical control
has now been reversed back to the parent company with PRI department relegated to being a
just a mouthpiece for parent department.
Financial Devolution
Rajasthan constituted its Fifth State Finance Commission in May 2015. The state interim report
for 2015-16 mentions, ‘We also realize that strengthening local bodies is not just about
‘normative’ or ‘appropriate’ devolution. Accountability, transparency and strong ‘administrative
will’ together build the entire ecosystem where it is possible to translate political decentralization
into financial decentralization.’
The state pool extends 7.182% of the state net own tax revenue to the local bodies which makes
a total of Rs 2457.13 crore for PRI.
Share of Panchayati Raj Institutions from total transfer of funds during 2015-16 2,457.13
85% funds for basic and development functions 2,088.56
10% grants for improvement in standards of administration and national priority
schemes
245.71
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5% incentive grant for performance 122.86
Particulars Tier level
Distribution
%
Funds for
Basic development
functions (85%)
Grants for improvement in
standards of administration
and national
priority schemes
(10%)
Incentive
grant for
performance
(5%)
Total
Zila
Parishad
5 104.43 12.29 6.14 122.86
Panchayat
Samities
15 313.28 36.85
18.44 368.57
Gram
Panchayats
80 1670.85 196.57 98.28 1,965.70
Total 100 2,088.56 245.71 122.86 2,457.13
Source: State Level Consultation
Distribution among PRIs
Incentive Grants to PRIs – As per the Fifth SFC, release of this grant is to be made on fulfillment
of any of the following functions:
1. Maintenance of accounts of income and expenditure
2. Maintenance of records including Asset register
3. Increase in Own revenue over previous year
4. Completion of enrollment and distribution of ‘Bhamashah Card’ to all eligible people
The interim Fifth State Finance Commission report (2016-17) has proposed to revise the
distribution percentage for expenditure heads under local bodies to be:
• Basic and development functions – 55%
• National/ State priority schemes to support the quality of civic services – 40%
• Incentives – 5%
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Fourteenth Finance Commission Grant
The FFC grant to the state would be of following nature between 2015-2020:
Note: Amount in Rs. Crore
3.4.3 Innovations
Devolution in practice, per se in the state of Rajasthan finds itself far distanced with the contents
of the policy. The narrative although differs for different departments. Rajasthan state has once
been glorified for devising impactful policies for attainment of decentralized functioning. The
model of governance narrated post 2013-14 amendments has immensely contributed to the ideal
devolutionary methods.
Going by the Gram Panchayat Development Plan (GPDP) guidelines released by FFC in the
context of of fund utilization the state has adopted that from the FFC basic grant available to
GPs, 40% should be utilized in social development and 60% in infrastructure development.
Source: State Level Consultations
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4. DEVOLUTION OF 3Fs IN JHARKHAND
Under the 73rd CAA, 11th schedule of Article 243 (G), PRIs are to be equipped with powers and
responsibilities pertaining to 29 subjects to be able to deliver to economic development and
social justice. Subsequently, the Jharkhand Panchayati Raj Act, 2001 under the article 75, 76
and 77 extends such powers and functions to the Gram Panchayat, Panchayat Samiti and Zila
Parishad. Concerted efforts have been made by the state since to devolve the 3Fs i.e. Funds,
Functions and Functionaries to the local self-governance units. The first series of events were
initiated towards devolution in 2013 followed by 2014. Primary findings form state level
consultation is presented below.
4.1 PRI Structure
After the enactment of JPRA in 2001, the elections in the state were first held in 2010 and then
later in 2015. Three – tiered structure of governing local bodies is followed in Jharkhand:
4.2 Devolution of 3Fs
As per the constitutional guidelines and the JPRA, the Panchayat and Rural Development
Department issued certain orders in 2013-14 to 9 state departments including Health, Medicinal
Education and Family Welfare Department; Social Welfare, Women and Child Development
Department; Drinking Water and Cleanliness Department; Water Resources and Human
Resource Development Department (Primary Education).Under the scope of assessment of the
current study, we are to look at the devolution status and possibilities of Funds, Functions and
Functionaries for the following departments:
Source: State Level Consul tation
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• MGNREGA
• ICDS; Social Welfare, Women and Child Development
• Primary Education
• Drinking Water and Sanitation
• Health and Family Welfare
Devolution Status
MGNREGA
The State Level Consultations which included in-depth interviews with the line department heads
and department consultants enable to identify the current roles and functions of Gram
Panchayats, Panchayat Samitis and Zila Parishads.
Zila Level Panchayat Samiti Level Gram Panchayat Level
• Main Implementation
agency of MGNREGA
• Review all the monthly reports of the on-going work
• Review and Monitor
Rozgar Sewaks
• Planning of activities such as construction of roads, bridges, buildings etc to be done at village level
• Monthly monitoring report of the on-going works to be prepared at GP and submitted to Block
• Work Order to be prepared by panchayats
• Monthly reporting of Rozgar Sewak to BDO
Source: State Level Consultations
Devolution of Functionaries
• The Rozgar Sewak is positioned with the GP
• Monitoring and Reporting of Rozgar Sewak is to be done by BDO
• Mukhiya is to be a signatory to the monthly report of Rozgar Sewak for the release of his
salary
• Junior Technical Assistant is placed with a cluster of Panchayats (around 20) and has to
report to the Panchayat Samiti
Devolution of Funds
• All the funds such as salaries and reimbursements of all officials and workers with
MGNREGA are electronically transferred
• Post Planning of all activities that are to be carried out under MGNREGA, the funds are
transferred electronically
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Learnings and Insights
• A top-bottom approach is practiced informing the public on the initiatives to be taken
under MGNREGA in the yearly plan therefore missing out on the real needs of the people
• All the communications/notices issued do not reach panchayats in real-time and witness
immense delay thus negotiating with the works of panchayats
• The Gram Panchayat Karyakari Samiti (parallel body) is nodal in planning the MGNREGA
works, identification of beneficiaries and monitoring. GP works in close coordination with
the Karyakari Samiti to monitor MGNREGA.
Human Resource Development Department – Primary Education Directorate
In concern with the Department of Primary Education and the role of panchayats several
Government Orders have been issued by the department to define the functions, functionaries
and funds for panchayats vis-avis primary education. Following the GO issued by Panchayat and
Rural Development Department on 16.2.2013, in terms of devolution, another GO was issued on
5.9.2013 by the Primary Education Directorate to lay down clear orders on the devolution to
panchayats. Also, subsequently in 29.12.2016, Order No. JFFC/2200 was issued reinforcing the
functions and funds to be utilized by the Gram Panchayat to help improvise the implementation
of RTE 2009.
Devolution of Functions
At Zila Level At Panchayat Samiti Level At Gram Panchayat Level
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• Planning around SSA scheme at district level
• Would address the issues highlighted at Social Audit and monitor all activities related to primary education, SSA and other literacy schemes
• Can plan on expenditures of such funds as may be provided by the department.
• Will monitor the schools in the panchayat and submit the report to the department official to take such actions as may be required
• At the Block level, with the help of SSA office in the block, will help in compilation of enrolled students and also contribute in planning the SSA scheme implementation at Block level
• Would constantly monitor the progress of SSA and other education schemes
• Would identify such areas where school facilities are not available and take up such planning activities to ensure education to such areas
• Organize awareness and community meetings with SMCs etc to reduce dropouts
• Will monitor the schools in
the Block and submit the
report to the department
official to take such actions
as may be required
• Needs to prepare and update a data base on the registered number of teachers, students, the cooks for the mid-day meal of the school and also monitor and record the structure and the Logistics
• Will support the SMCs in planning and also help in land selection for constructions. Would also monitor the construction and repair of school buildings
• Ensure enrollment of all and organize and participate in such community meetings to reduce the Dropouts
• Would help in identification of beneficiaries for scholarships and also ensure distribution of books and uniforms with support to SMCs
• Monitor the regular supply and quality of Mid-day meals
• Ensure carrying out the Social Audit for SSA and other such literacy programmes.
• Will monitor the schools in
the panchayat and submit
the report to the
department official to take
such actions as may be
required
The Mukhiya can submit
reports on disciplinary matters against school teachers, headmaster etc to the District Education Officer
Source: State Level Consultations
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Devolution of Functionaries
At Zila Level At Block Level At Gram Panchayat Level
• District Education Officer and Subdivision Officer will function under the Zila Parishad, participate in meetings of Zila Parishad
• For casual leaves and other permits such as leaving the office premises, will take permission from Executive Officer
• Block Education Officer will function under Panchayat Samiti and will participate in all its meetings
• For casual leaves and other permits such as leaving the office premises, will take permission from Sachiv, Panchayat Samiti
• For Primary and Middle Schools, the teachers and the Headmasters will function under the Pram Panchayat and will take permission from Mukhiya for casual leave and to leave premises
• All the para teachers will fall
under direct authority of GP
and will perform their
functions under GP
Source: State Level Consultations
Devolution of Funds
Gram Panchayat will support and monitor the funds as provided with School Management
Committees and ensure transparent utilization of the money. In case of discrepancy, they will
report to the department officers.
Social Welfare, Women and Child Development Department
Following the Government Orders issued in 2012, certain functions, functionaries and
funds have been made available by the department in consonance with national
Integrated Child Development Scheme (ICDS). These include –
At Zila Level At Block Level At Gram Panchayat Level
To monitor the construction, repair and beautification of anganwadi centres Payment to Sevika and Sahayika after the report is submitted by Lady Supervisor
To monitor and
supervise the
functioning of the
anganwadi centres
To participate and
ensure selection of
Sevika and Sahayika
Identify such areas
where anganwadis
need to be
constructed
To monitor and ensure
timely opening of
anganwadi centres and
their regular
functioning and in
terms of irregularity
will submit the report
to ICDS department
along with
recommendations.
Monitor and report
such anganwadis
which need
It will supervise the
process of selection of
beneficiaries done by
sevika and or sahayika
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maintenance and
repair
Will contribute in
ensuring regular
presence of sevikas
and sahayikas in
anganwadi centres
Will ensure the quality
and distribution of the
Nutrition Supplements
under the scheme
Will be present
around on Village
Immunization and
Health Nutrition Day
to support
Will participate in
community awareness
programmes organized
Land identification for
health- centers is to be
done by panchayats
and the construction is
to be monitored
Source: State Level Consultations
Devolution of Functionaries
• Selection of Sevika and Sahayika is done at the Gram Sabla level (followed since
GO- 585, dated: 02-06-2006). After a list of eligible candidates for the position is
made, a committee comprising of the ANM, Mukhiya, Lady Supervisor,
Headmaster is constituted, who do the selection of candidate.
Devolution of Funds
• Zila Parishad will be made available of such funds as will be required in
construction, maintenance and beautification of anganwadi centers. In support
from Panchayat Samiti, the Zila Parishad will identify such areas where there is a
need for construction of anganwadis and monitor on the repair and maintenance
of others.
Health, Medicine and Family Welfare Department
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Devolution of Functions
At Zila Level At Block Level At Gram Panchayat Level
Recommend state for opening of new hospitals at suitable location in district
Identification of land
for construction of
District Hospital
and other
district level health
infrastructure
Facilitate identification of rental space District level planning,
IEC activities
for
implementation
of national
health
programmes
Identification of
beneficiaries
Supervision of various health workers working at district level
Identification of land for construction of PHC/CHC with cooperation of MOIC/ revenue officials
Maintenance of Asset
Register
Facilitate rental space, if required Block level planning,
IEC activities for
implementation
of schemes
Identification of
beneficiaries
Supervision/distribution
of various items, materials, assistance to approved beneficiaries Supervision of Block/ PHC/CHC level health workers
• The GP needs
to participate
in identification
of suitable land for
construction of health
sub-centers
• Supervision of village health level worker, ANM and Sahiyas
• Beneficiaries identification for the scheme
• Engage in preparatory activities and IEC with the VHSNC committee for carrying out successful implementation
• The GP is to participate in preparation and approval of GP level health plan through support of VHSNC Committee
Source: State Level Consultations
Devolution of Functionaries
At Zila Level At Block Level At Gram Panchayat
Level
• Monitoring the
functioning/
performance and attendance of health functionaries at district level and to report the same to District
Collector/Civil Surgeon
• May suggest transfer
of health functionaries
Monitor the
performance and
attendance of the
health functionaries at
block level and report
to district authorities
Monitoring and
supervision of health
functionaries of sub
center
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within district to DHC
Source: State Level Consultations
Devolution of Funds
The health committee headed by Mukhiya at the sub-center level receives Rs.10000 as untied fund and annual maintenance grant for sub-center. Also, the GP is to monitor the expenditure made through VHSNC.
4.3 Primary Findings from Block and District Visit
West Singbhum
Nestled among the lush greens, West Singbhum district of Jharkhand falls under Kolhan Division
and is a tribal dominated region. Thus, a PESA area. Traditionally the Hos, Bhumijis, Santhals,
Bhuiyas, Oraons, Mundas and Gonds part a majority to the tribal populace. The district forms
the southern area of Chhotanagpur plateau and is hilly land. The district headquarter being
Chaibasa, West Singbhum is divided into three sub-divisions, eighteen community development
blocks and 216 Gram Panchayats. As per the scope of study, the research team visited Jhinkpani
block to carry out primary discussions.
General Functioning and Participation
To start with, to develop a general understanding on the nature of Panchayats, the roles they
are exerting and the resources under them; the BDO explained the current status. Panchayats
in Jhinkpani block have developed a fair understanding on their functions and role. Gram Sabha
is organized at regular intervals as per the need of public affairs, more than twice a year.
Participation in GS is ensured by presence of the traditional community leader, Munda. Munda’s
authority upholds lot of significance in overall functioning of the GP.
Standing Committees
Although, constitutionally under the JPRA Act 2001, a provision to have Standing Committees at
all three levels of rural local governance are to be formed, the process is still going on. Formation
of Standing Committees has happened with Mukhiya as a part of it but they are not in regular
functioning. Standing Committee meetings have been held only twice at maximum for a few GPs.
Committees on education and environment, women and child development, agriculture,
infrastructure, health, vigilance, village estate and social justice are to be spearheaded in the
PRI system.
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Devolution of Functions
Education: The department of School Education has extended certain functions to the GPs,
basically in terms of Monitoring. They can be put as:
Signing of absentee for Primary teachers
Maintaining a record of teacher’s presence in classroom
The salary of teachers is released at the Block level only after Mukhiya’s signature on the
register, every month
Matters concerning disciplinary action
Women and Child Development: In association with the women and child care department:
• The selection of sevika or sahayika is carried out by a committee of which Mukhiya is a
part Show cause notice is issued by Mukhiya if any sevika or sahayika fails to attend
the GS meeting
• There is minimum role of Mukhiya in maintaining the regular attendance of the sevika or
sahayika. The Lady Supervisor at Block is mainly responsible for their attendance but
Mukhiya can inform the Lady Supervisor in case of regulated absenteeism or any other
disciplinary problem
• Land identification for health- centers is to be done by panchayats and the construction
is to be monitored
Health: Minimalistic approach in terms of devolution has been adopted by the health
department. The Block Medical Officer In-Charge explained:
• The holiday, leave and absenteeism of the ANM is to be granted and maintained by the
GP.
• All the monitoring and supervision of ANMs work is done by the Block. No role is played
by the panchayats at any level related to the supervision of work of the medical line
department functionaries
• Leave of Medical Officer is sanctioned by the BDO
Devolution of Functionaries
Minimalistic areas of associations are found to exist between the members of the line
departments at each level and the panchayat institutions. From the WCD department, the
sahayika working in panchayats is partially monitored by the GP. Also, the teacher’s appointment
and monitoring, is to be carried out by the panchayats but it isn’t practiced. Largely all the line
department deputes at the panchayat level, are monitored and issued remuneration by their in-
line in charges only. Although panchayats are to monitor their work, there is by no means any
complaints that have been made by the same.
Financial Devolution
In terms of financials, not much as a window creak has been extended to panchayat institutions
in tunes to the line-departments.
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Planning
Jharkhand was one of the first states to issue contextualized GPDP guidelines issued by central
government, formerly. Therefore, planning and budgeting process has been carried out by
panchayats. The process initiated with conducting training of panchayat elected representatives
and ward members and panchayat volunteers (sachivalaya swayamsewak). Extensive exercise
and discussions at Gram Sabha level were carried out. The planning collectively done at the
village level thereof, is accumulated and built upon at the Block level i.e. Panchayat Samiti and
then further taken to the Zila. The development plans prepared and accepted have been
uploaded on the PES unit Plan Plus.
Accounts and Audit
The audit of panchayat funds is carried out by C &AG and Local Fund audit, by the state
government. Although, the panchayats are aware about the online software PRIASoft, it is not
in extensive usage, primarily because there is one technical Computer Operator in 5 panchayats
usually and he, because of disruptions in internet availability in panchayats usually sits in the
block.
Thus, both human resource and infrastructure are in dearth here. Additionally, the Panchayat
Sachiv is usually given the duty to prepare and update the account records but as its done
manually and there is no help for the Sachiv, s/he is usually overburdened.
Capacity Building and Training
Trainings of the elected representatives at three levels are being organized from time to time.
Post elections, the orientation trainings were conducted to equip the elected representatives with
their duties and powers.
Post that, from time to time, theme based trainings are carried out on various center and state
schemes, the FFC, GPDP etc.
E-connectivity
At the block and the district level, the infrastructure and the technical resources have been made
available by the state to take Panchayats online. Under the Digital India initiative, all the
information on Jharkhand Panchayats, the details of elected representatives, GP plans and
accounts etc, all are being uploaded on the internet.
Deoghar
Part of the Santhal Paragna Administrative Division, Deoghar is one of the 24 districts of
Jharkhand, formed in 1983. Spread over an area of 2479 sq km, the district comprises of 10
blocks. Occupied mostly by the Hindu populace, Deoghar is the non-PESA area selected to
understand the status of devolution of 3Fs. The research team visited Sarwan block in the district
to carry forward in-depth discussions.
General Functioning and Participation
General body meetings at GS level are organized regularly, at least twice a year. The quorum of
the meeting is met. Mostly, the meetings are held more than twice a year at shorter intervals as
and when need is felt.
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Standing Committees
Although the Committees have been formed, the meetings are not called upon regularly. Also,
there is limited understanding in terms with the roles and functioning of the Standing
Committees. Planning
As per the GPDP guidelines issued, participative planning exercises are being carried out in
panchayats.
Accounts and Audit
The Local Fund audit and the C & AG auditing is annually carried forward. Although systems
have been put in place for PRIA Soft online software for maintenance of books, regular
upgradation is difficult due to lesser number of qualified human resource within.
4.4 Primary Findings from Gram Panchayat
1. Meetings and Participation
Alongside, the pie indicates the frequency of meetings
the Gram Panchayat in a year. Out of the ten
panchayats, two have the meeting at least thrice, six
have the meetings four times a year and the rest As
per the data, the meetings are organized regularly, at
least more than two times a year and the maximum
number of meetings is four.
The records of the minutes of the meetings are
maintained mostly by the Panchayat Secretary i.e. in
eight panchayats and in two panchayats in PESA
area, the Mukhiya maintains the panchayat meeting
minutes. While in the non-PESA area, it has been
mentioned that regular panchayats are organized, in
the PESA region, Lack of Interest has been identified as the most prominent reason for
irregular meetings.
Overall, the Gram Sabha is organized around four times in a year wherein the discussions
revolve around the broad themes of health, education, infrastructure, MGNREGA, water
and sanitation and the pension schemes. In the panchayat meetings participation is
witnessed from the government, semi-government and Panchayat members, specifically
the teachers, Headmaster, anganwadi sevikas, ANM, Rozgar Sevak, Village Level
Workers etc.
Frequency of GP Meetings
Three Times Four Times Others
Source: Primary Data; Reflective of (%) of
frequency of meetings organized by GPs
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Records of GS meetings organized at the
village level along with the reports of other
development schemes are maintained
regularly by most of the panchayats.
For the Standing Committees, all the ten
panchayats state that there is a provision for
SCs at the panchayats. The names of existing SCs mentioned include Samanya
Prakashan Samiti, Vikas Samiti, Mahila and Shishu Kalyan Samiti and Health, Education
and Paryavaran Samiti. Their roles are around Planning and Monitoring and have good
coordination level with the GP.
From the Panchayat data, there is an absolute 50-
50 divide amongst the ten panchayats on the task
of annual report preparation. The five panchayats
in the Non- PESA area are involved in the
preparation of Annual Reports while those in PESA
region, are not involved in Annual Report
preparation. The Gram Sabha and the panchayat
play key role by participating in the report
preparation process. Also, the reports of GPs in
non-PESA areas are published by the Gram
Panchayat.
2. Planning
As the annual planning is carried out only in Non-PESA area, the community participation
at the ward and the village level is also witnessed in the area and for the PESA region,
lack of awareness and appropriate training have been identified as the major issues to
address to increase community involvement in local planning. Additionally, in the non-
PESA area, the Gram Sabha plays a role of beneficiaries’ identification for development
interventions while in the PESA area it doesn’t. Also, no role has been identified to be
played by Gram Sabha in planning, monitoring and execution of the development
schemes in PESA region.
Maintenance of financial and other
records/reports of development scheme
GPs
Yes 8
No 2
Total 10
Annual Report Preparation
2
3
Source: Primary Data; Reflective of GP
participation (%) in Annual Report Preparation
Source: Primary Data; Reflective of overall Count
values
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In the non-PESA area, the role of Gram
Sabha are extended to the planning,
monitoring and execution such as in
MGNREGA, drainage and sanitation and
drinking water. The responsibilities
regarding these subjects resting with the
Gram Sabha include conducting Social Audit
for MGNREGA, maintenance of the ponds,
wells, dobha construction and land
levelling.
As far as the availability of financial
resources for organization and documentation of Gram Sabha meetings is concerned,
insufficient resources and funds have been identified. And also, as all the Gram
Panchayats do not have enough financial aid to use photography and videography
equipment or resource for documentation of meetings, additional funds are also not
made available by the State government.
While in PESA GPs, the Social Audit is not conducted by the panchayats, in the non-PESA
GPs for the schemes of MGNREGA, IAY, SSA and ICDS the Social Audit is to be done by
the panchayats. Moreover the social audits for MGNREGA in PESA panchayats are
conducted in every six months, while in non-PESA panchayats are conducted once a year
and the reports are brought to public domain for eight panchayats. For the IAY scheme,
the social audits are done once a year in all GPs and the reports are published in the
public domain. The social audits for SSA and ICDS schemes are conducted in the PESA
GPs only, with the SSA audit being conducted every year and the ICDS audit every six
months and the reports of the both are brought in the public domain. Also, to ensure
accountability at the panchayat level, the panchayats in non-PESA region state that
mechanisms have been adopted by the state to ensure accountability of panchayats
while its not here in PESA regions.
Involvement of Gram Panchayats in Important Schemes
S.No Functi
ons Delegated by
Legislature Function undertaken
by GP
Yes No
1 Drinking Water, Water Supply for Domestic
Purpose 9 8 1
2 Roads 9 9 -
Availability of Funds Yes No
Is there sufficiency of funds for GS
meeting and for
videography/photography
- 10
Are funds made available by State
government in case of insufficiency? 2 8
Source: Primary Data; Reflective of overall Count values
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3 Culverts 9 6 3
4 Maintenance of Community Assets 6 5 1
5 Street Lighting, Parking Lots, Bus Stops 7 4 3
6 Primary Health Centre 8 4 4
7 Sanitation & Solid Waste Management 7 7 -
8 Cremation and Burial 7 4 3
9 Poverty Alleviation Programmes
6 1 5
10 Family Welfare 8 4 4
11 Women & Child Development 7 3 4
12 Adult & non-Formal Education 7 3 4
13 Agriculture & Agricultural Extension 7 3 4
14 Land Reform 7 7 -
3. Devolution of Functions
Primarily, from the subjects devolved to the panchayats, nine panchayats are aware that
drinking water supply has been delegated by legislature and eight panchayats have taken
up roles regarding the same. Similarly, nine panchayats are aware of their functions
delegated by legislature on the Culverts but six have taken tasks on implementation
regarding the same while three haven’t. Along with, regarding the functions related to
street-lightning, parking lots and bus stops, four GPs have taken up work and three have
not. From the six GPs who are aware about the functions delegated to them regarding
Poverty alleviation programmes, five of them have not taken up any work related to
them. Even with functions related to Women and Child development scheme, only three
panchayats have taken up such roles whereas four of them have not. Similar outputs
can be seen with respect to the subjects of Adult and Non-formal education and
Agriculture and Agriculture Extension services. From the table presented, the pattern
suggests that although the Gram Panchayats are aware of the functions and roles
delegated to them by the legislature, not all of them have taken up such tasks to execute
their powers.
Role of Gram
Panchayats i n Important Schemes
Important Union
Governm ent Schemes Role and Responsibilities of Gram
Panchayat
Planning Implementation Monitoring
Source: Primary Data; Reflective of overall Count values
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National Horticulture
Mission 2 - 7
Sarva Shiksha Abhiyan
(SSA) 5 - 10
National Rural Drinking
Water Program(NRDWP) 5 2 10
Nirmal Bharat Abhiyan
(NBA) 8 7 10
National Rural Health Mission (NRHM) - - 7
Integrated Watershed Management Programme
(IWDP) - - 7
Mahatma Gandhi National Rural Employment
Guarantee Programme (MNREGA) 8 6 10
IAY 6 5 9
Pradhan Mantri Gram Sadak Yojana (PMGSY) 3 0 7
Integrated Child Development Services (ICDS) 4 6 7
National Rural Livelihoods Mission (NRLM) 1 3 7
National Food Security Mission (NFSM) - 3 4
National Social Assistance Program (NSAP) - - 5
The functional devolution to panchayats in terms of their roles and responsibilities with
respect to the central and state sponsored schemes broadly fall into the paradigms of
Planning, Implementation and Monitoring. For the National Horticulture Mission, seven
of the panchayats have engaged in monitoring; for the education scheme of SSA, the
panchayats of PESA regions are involved in the planning while monitoring roles have
been taken up by all the panchayats. In the Rural Drinking Water programme, five
panchayats of PESA region have been engaged in planning, two have been a part of the
implementation of the scheme while all ten have been the monitoring authorities at the
village level. Panchayats have been accorded planning, implementation and monitoring
roles for the rural employment scheme i.e. MGNREGA. Eight panchayats have performed
planning roles, six have carried out implementation activities and all have been
associated with monitoring the scheme. For the ICDS programme, four panchayats have
participated in planning, six have been a part of implementation and seven have been
monitoring the programme. Thus, the indications suggest that maximum role of
panchayat bodies has been limited to monitoring the programmes while very little role
in regards with implementation and planning is seen.
Source: Primary Data; Reflective of overall Count
Values
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Role of Panchayats with Parallel Bodies/
Institutions
Status/Parallel Bodies VEC VHSNC WDC VWSC SMC
Parallel bodies merged with Gram
Panchayat 10 10 10 2
2
Parallel bodies accountable to Gram
Panchayat 8 8 8 -
3
Parallel bodies are chaired by
Sarpanch/Chairperson/ Ward
Member
- - -
5
-
Parallel bodies totally separated from
Gram Panchayat 1 2 -
2 1
With respect to standing committees and parallel bodies, the Village Education
Committee is merged with all the ten panchayats but in eight panchayats the VEC is
accountable to them. For the VHSNC also, the parallel body is merged with panchayat
while is accountable in only eight panchayats. Five panchayats have the VWSC chaired
by the Sarpanch/Chairperson/Ward member. Interestingly, for DRDA, NRHM, SSA and
agriculture the panchayats work closely with the parallel bodies. For ITDA, for nine
panchayats the parallel body is made a unit of the panchayat, whereas for NRHM, SSA
and agriculture, the parallel body has been made a unit of panchayat in five panchayats.
Eight panchayats have their elected representatives to be represented in the board of
DRDA, six in the board of water and sanitation and five for NRHM.
Role of Panchayats in Government bodies
Status/Parallel Bodies DRDA ITDA Water & Sanitary
NRHM SSA Mission
Agricultur
e Deptt. SBM
Parallel body merged with
the Panchayat Institution 10 4 5 10 10 10 -
Parallel body made an unit
of the Panchayat 4 9 6 5 5 5 -
Function of parallel body
limited to Fund/accounts
Management 3 2 - -
2 2 2
Source: Primary Data; Reflective of overall Count
Values
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Parallel body is Presided/ Chaired by Elected Representatives of the Panchayat
-
5
- -
6 2 5
Elected Representatives
of Panchayats are
represented in Board of
the parallel body 8 3 6 5 3 3
-
Parallel body remains
separate, but under the
control of the Panchayat. 2 5 2 2 7 4 2
Parallel body remains
separate and not under
the control of the
Panchayat 7 2 4 7 2 5 3
4. Devolution of Functionaries
Amongst the Panchayats, the regular staff positions provided include Secretary, Junior
Engineers, Technical Assistant, Data Entry Operator and Accountant. All the panchayats
have a Secretary or Panchayat Sachiv appointed along with the Junior Engineer and Data
Entry Operator. Whereas, half of the panchayats have an Accountant and Technical
Assistant. Only in the PESA panchayats, Rozgar Sevak is a part of the gram panchayat.
Staff Structure of Gram
Panchayat
Staffs Secretary Junior Engineers
Technical
Assistant Data Entry
Operator Accountant Rozgar Sevak
10 10 6 10 5 5
Furthermore, reflecting on the functions of gram panchayats in terms of engaging with
the appointment, transfer and the authority over disciplinary actions; actions on
disciplinary matters can be only made by panchayats for Primary school teachers while
appointment as well as disciplinary action for para teachers is to be taken up by the
gram panchayats for non-PESA panchayats. Additionally, two GPs of non-PESA region
participate in appointment of ICDS functionaries at the village level and all five have their
discretion over disciplinary matters. Likewise, the panchayats in non-PESA region
exercise power over appointment, transfer as well as disciplinary action over the
anganwadi workers.
Source: Primary Data; Reflective of overall Count Values
Source: Primary Data; Reflective of overall Count Values
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5. Devolution of Funds
Along with the FFC grants to the panchayats, certain funds are made available by the
state department to the panchayats. An average of the funds made available to the
panchayats is presented in the table alongside. For the year 2015-16, in two installments
an average of total Rs.1448530. Subsequently for the year 2016-17, an average sum of
Rs.699261 has been provided to the gram panchayats.
The items of expenditure incurred by the panchayats include salary payment, capital and
revenue expenditure and expenditure in central and state sponsored schemes. Hereby,
the calculated average amounts show that maximum expense of panchayats is incurred
in the capital expenditures while minimum expenses are incurred in reimbursement
costs.
Grants to the Panchayat
Instalment of Grants Released by
state
Average amount
(in Lakhs)
1st for the year 2015-16 561298
2nd for the year 2015-16 887232
1st for the year 2016-17 1082475
2nd for the year 2016-17 591016
Expenditure of Gram Panchayat
Items
2016-17
(Average
in Lakh)
Expenditure on salaries paid by the
Panchayat
45465
Capital Expenditures made by
Panchayats
1966171
Revenue Expenditures made by
Panchayats
-
Expenditure on Centrally Sponsored
Schemes
212746
Expenditure on other Schemes 1034300
Total expenditure made by all
Panchayats of the State
20000
Source: Primary Data; Reflective of cumulative
average figures
Source: Primary Data; Reflective of cumulative
average figures
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6. Capacity Building and Training
As indicated alongside in the chart, maximum gram panchayats reveal that as per the
GP trainings are concerned, there is no fixed time-period or schedule that is being
followed by the department. Also, three of the panchayats reveal that capacity building
exercise is carried out by the department throughout the year. Training need assessment
is carried out by the department before organizing the same. Past trainings have been
organized around the themes of MGNREGA, SBM, powers and functions of Mukhia and
the Ward members, etc. Mostly written materials were only made available for the
trainings although they were not in local language of the training attendees. No
infrastructure has been brought in place to carry out distance trainings using satellite
systems. Amongst the total number of elected representatives in the panchayat, 90%
have participated in training exercises conducted by SIRD unit.
7. Infrastructure and E-connectivity
To render the ease of work and efficiency, seven panchayats have a pucca building while
three of them don’t. Although all the panchayats have computers and printers available
for their work, internet, scanners and telephones are still unavailable. Along with most
of the panchayats are not connected through LAN or WAN nor have wireless connectivity.
Half of the panchayats have their e-mail addresses made and seven of them upload their
records online and also put use of ICT for service delivery.
Table 33: Infrastructure and Connectivity
Yes No
Gram Panchayat have Pucca building 7 3
Gram Panchayat have Computers and Printers 10 -
Gram Panchayat have Scanners - 10
Gram Panchayat have Telephone - 10
Gram Panchayat have Internet - 10
Gram Panchayats connected to each other through LAN or
WAN 4 6
Source: Primary Data; Reflective of absolute
figures Source: Primary Data; Reflective of Count
Values
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5.1 Learnings from State Findings
Devolution of Functions
Defining the roles and responsibilities such as the rural self-governance bodies must exercise
discretion has been constitutionally notified under 73rd CAA. The 11th schedule of the article 243G
mentions as much as 29 subjects which are to be devolved to panchayats. The JPRA, 2001 also
speaks in the same tone for devolution. But devolution comes step by step, it’s a phased
procedure. The states in India have devolved the functions to panchayats as they deem to be in
their capacity of execution. Also, concerted theme based capacity building modules are also
prepared to equip the elected representatives with governance guidelines. Similarly, the state of
Jharkhand has devolved 16 subjects form the list of 29 to its panchayati raj bodies. State of the
other states under the purview of this study; Odisha - 21, West Bengal – 27, Rajasthan – 5,
Chhattisgarh – 27 (likewise MP).13 In terms of the initiated devolution by these states, policies
have been framed around them.
The State Level Consultations revealed the nuance of devolution and how carefully it is to be
treaded towards. Largely, two kinds of models of functional devolution have been identified.
Either, the subjects relating to tasks influencing the daily life of people staying in the area, have
been partially devolved to the governing bodies or for a few subjects greatly impacting the socio-
economic development of population, have been largely devolved. The fault of the first lying in
13 Status on devolution of departments/subjects with funds, functions and functionaries to the Panchayati
Raj Institutions for Major States/UTs: 2011-12; Press Bureau of India
Gram Panchayat use wireless connectivity 3 7
Gram Panchayat have its own e-mail address 5 5
Gram Panchayat regularly uploads data online 3 7
Gram Panchayat uses ICT for delivering services 2 7
5. PROPOSITIVE ROAD MAP
Source: Primary Data; Reflective of Count
Values
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the fact that even after receiving such powers, either the panchayats are ill-informed about them
to act, the resources to take actions on those areas are not available, the home departments do
not support objectively the panchayats in execution of such functions due to lack of trust
including other implementation challenges.
Thus, a wiser approach gathered from the examples viewed reveals that devolution should be
practiced in scarce. With each subject devolved, points marking exact roles and reporting
authorities at each level should be presented. This will establish the clarity. Along with this, the
unfailing formula of completing the loop must go on i.e. feedback mechanisms need to be given
space. At each level with each subject devolved to monitor, transparent means of reporting
back should be established. Because the village community is close knit, it has been observed
that it is difficult for people to check each other. Also at multiple times, the elected
representatives are unaware or are not welcome to file their observations. As we are moving
forward in the digital age, internet can be put to use to report back by panchayats. But care is
to be ensured in framing the structure of feedback.
Devolution of Functionaries
In the understanding of devolution in the current circumstances, devolution of functionaries
involves most complexities. Certain aspects such as reporting, salary, monitoring, leave and
disciplinary action related to the post fall under this. Presently, the common model being
exercised is combined precedent of panchayats and line-departments on the functionaries. The
situation thereof being; ‘different pay-master and different say-master’. Thus, little discretion
left with say-master, eventually the pay master exercises maximum value.
The learnings from the States visits to Odisha, West Bengal, Rajasthan and Chhattisgarh reveal
that Rajasthan has been the pioneer in devolving functionaries from the line departments to
each panchayat level. The outline revealing the details of which are finely presented in the policy
update of 2010. The to-go methodology to effective devolution would be that at the block and
the Zila level, appropriately incapacitated functionaries should be made available with the PRI
system. Example, the Lady Supervisor of WCD department is to monitor the work of Sevika at
the Block. Also, the panchayats have been devolved the power to monitor work of the Sevika,
but usually the panchayats say is of little significance. But id the Lady Supervisor becomes a
part of the Block panchayat, the monitoring and remuneration could be more efficiently
managed.
Likewise, proper autonomy and decision-making powers need to rest with the panchayats for
them to be able to exercise their role as governing bodies.
Devolution of Funds
The FFC is giving direct money to GPs twice a year to engage with such roles as would contribute
to development of local lands. The question of sufficiency of the grant is to be further reviewed
and is not in scope of this study. Increasingly, dialogues are being held around the Panchayat
window in each department who has devolved the functions and functionaries to panchayats.
This resource would help them carry out the already assigned roles. Therefore, should be acted
upon.
Also, with money going from the central government directly to GPs, the block and Zila
panchayats are experiencing funds scarcity. Here the role of State Finance Commissions
becomes strategically important. The already existent SFCs in the visited states present the
importance of the institution. They are impeccable in advising the Panchayat Department and
Documentation of Devolution of Functions, Functionaries and Funds to Panchayati Raj Institutions in
Jharkhand
TARU/UNICEF 76
the state, the percentage of finances to be distributed at each panchayat level as they assess
the come and go of panchayat finances.
ANNEXURE
ANNEX – 1 Minutes of Inception Meeting
ANNEXE 2 - Stakeholder Consultations
Stakeholder Consultations
List of Contact persons
Chhattisgarh
S.
No
Name of the Contact Person Designation
1. Shri P.P. Soti State- Planning
Commissioner,
Chhattisgarh
Ex- Director, P& RD
(2004)
2. Shri Surendra Jaiswal
Introduction with- Mr. Patel
Commissioner, P&RD
Deputy Director, P&RD
3. Shri P.C.Mishra Principal Secretary,
P&RD
4. Dr.Ashok Jayaswal Faculty Member, SIRD
5. Shri Sushil Sharma
Joined by – Shri Paresh Rawat
Assistant Director,
WCD, ICDS
Assistant Director,
Nutrition, WCD
6. Ms, Alice Manisha Lakra State Coordinator,
State PESA Cell, Rashtriya Gram Swaraj Abhiyan,
P&RD
7. Dr. Amar Singh Thakur Deputy Director, Child
Health and
Immunization,
Department of Health &
Family Welfare
8. R.K. Verma Principal, District Institute of Education and Training, Chhattisgarh
9. Dinesh Singh Programme Manager,
Samarthan,
Chhattisgarh
West Bengal
S.No Name of the Contact Person Designation
1 Dilip Kumar Pal Advisor; P & RD
Department, Member –
Secretary- STARPARD
Odisha
S.No Name of the Contact Person Designation
1. Shri Hemanta Kumar Padhi Director, Panchayats &
Drinking Water
Department
2. Shri Kalyan Kumar Ratha Deputy Secretary to Govt. of West Bengal, Child Welfare and Protection, WCD Department
3. Shri P. K. Biswal Additional Secretary, P
&
C, Formal Member,
State
Finance Commission
4. Shri Saroj Kumar Dash Deputy Director, SIRD,
Government of Odisha
5. Shri P.K. Naik Faculty, SIRD
6. Dr. Dinabandhu Sahoo Joint Director,
Technical,
NHM
6. Shri Jayadev Dakua Programme Director,
CYSD
7. Shri Basant. K Nayak Programme Member,
CYSD
8. Shri Jitendra Sundar Roy CYSD
9. Ms. Uupali Mohanty Programme Member,
CYSD
10. Shri Anant Swain Programme Member,
CYSD
11. Shri Bhabani Prasad Mahapatra Senior Researcher,
CYSD
12. Prof. A. Mohanty Formal Member, 4th
SFC,
Resource Member
- RICOR
13. Shri Suresh Patnaik Resource RICOR –
Decentralised Planning
14. Dr. Amiya Kumar Behera Executive Director,
CYSD
Rajasthan
S.
No
Name of the Contact Person Designation
1. Shri Vishnu Kumar Goyal Deputy Secretary
(Legal)
Panchayati Raj & Rural
Development
Department
2. Shri S.C. Derashari Member Secretary
State Finance
Commission
3. Shri Shanti Lal Jain Consultant, State
Finance Commission
4. Shri Sunil Kumar Sharma Joint Secretary,
Elementary Education
5. Shri Soumeshwar Dewda Assistant Director,
ICDS
6. Dr. Purnima Sharma Joint Director
(Monitoring), ICDS
7. Shri Bhupendra Kaushik BARC (Budget Analysis
Research Center)
8. Ms. Mollyshree Dhasmana BARC (Budget Analysis
Research Center)
ANNEXE -3 Tool for Stakeholder Discussions
General Information A. Date:
B. Name of the State………………………………………………………………………………
C. Name of the Department ………………………………………………………….
D. Name and Designation of the Respondent:
Devolution of Functions
1. What all subjects has been devolved to the PRIs?
Response:
Please collect a copy of the orders/notifications issued by the Govt. on devolution
of function. a. Relevant Policy Orders:
b. Relevant Executive orders:
c. Other Notifications/Special order issued:
d. Web Link:
2. Please highlight the institutional arrangement of PRI with that of the mother department.
Response:
A. On Accountability and Monitoring:
B. Monitoring of Sanctioned Budget:
C. Annual/Quarterly Plan:
d. If, any other:
3. Whether the instructions issued to the State Govt for devolution of function are good enough for selection of beneficiaries, planning, implementing, disbursement of funds and monitoring. Capture significant deviations (if any) from national guidelines.
Response:
4. Does the actual process of decentralised planning differ in PESA PRIs from other PRIs?
Response:
5. Role of the Department in the matrix of devolution subjects/schemes. Please tick the
appropriate box (es) indicating respective activities undertaken by the Department.
Response:
Sl.
No.
Important Union Govt.
Schemes
Role and Responsibilities of the Department
Joint Planning with
other Deptts. Implementation
Monitoring
6. Any major limitations in translation of the policy into practice? Please explain in detail.
Response:
Devolution of Functionaries
1. Whether the functionaries are accountable to the concerned state department for
implementation of functions devolved to the Panchayats? Please suggest Yes/No.
Response:
Name of the
Subject/Scheme
At
District/Block/
GP level
No. of staffs
devolved
Role and
Responsibilities
Reporting
arrangement
2. If the functionaries are not accountable to the concerned department, then how PRIs
manage the functions devolved by the Department? How the departmental staffs are made
accountable to the PRIs?
Response:
3. Number of sanctioned positions. Number of positions vacant, duration they have remained
vacant and reasons. Any other problems of devolution of functionaries?
Response:
4. Is there any systematic effort to identify the capacity building need of functionaries and PRI
representatives? If yes please give the details of effort and results.
Response:
5. Has there been any organised effort from functionaries and PRI
representatives (through conferences, associations, unions etc. to demand CB
and training support? If yes please give the details of effort and results.
Response:
6. In general, is training and capacity building moving towards a demand-based
approach, or is it still mainly supply-driven?
Response:
5. Are trainers and resource persons mainly from the Government and SIRD, or is
there a move towards sourcing resource persons from NGOs and the private
sector? State reasons for the approach taken up.
Response:
6. Are SATCOM and/or other distance modes of CB & Training being used? If yes,
please provide a short note on the same
Response:
7. What is the status of use of PlanPlus software for planning in the study districts?
Is it fully operational? What problems are encountered in making it operational?
Response:
8. What are the major successes in the State with respect to computerization/ICT
use? What services are being provided to the GPs for the use of ICT?
Response:
9. Any major limitations in translation of the policy into practice? Please explain in
detail.
Response:
Devolution of Finance:
1. What are the steps involved in, and mechanism for, transfer of funds from the State-
level to District Panchayats?
Response:
2. Has the State Finance Commission (SFCs) made any specific recommendation regarding
devolution of funds to the PRIs? If yes, what are they?
Response:
3. Whenever funds are transferred to any of the PRIs for
expenditure * Who approves the scheme for the PRIs? * Who
approves payment?
* Who is authorised to sign the cheque for payment?
Response:
4. Highlight on specific grants to the GP for subject/scheme devolved. Capture information
for the last 2 Years.
Response:
Released to
Name of the Panchayats on
Subject/Scheme Amount (in Lakhs) Instalment of Grants DD/MM/YYYY
5. How the FFC grants (Basic and Performance Grant) are made to the PRIs? How the PRIs are
eligible to receive the grants? Highlight on the planning taken up by PRIs for grant
eligibility.
Response:
6. Is there any gap on the eligibility and actual transfer of funds to the PRIs under
FFC grants?
Response:
7. What has been the SFC grants to the Panchayats in the last two years. Please
mention in details the subjects/schemes under which funds has been devolved?
Response:
8. Additional Information on fund transfer to GPs for 2015-16 and 2016-17
Type of Grant Amount (in
Rs.)
Purpose
Plan Grant transferred by State to
Panchayats untied to any scheme
Plan Grant transferred by State to
Panchayats tied to schemes
Non-Plan Grant transferred by
State to
Panchayats untied to any scheme
Non-Plan Grant transferred by
State to
Panchayats tied to schemes
9. Can you highlight on the present accounting and audit arrangements and
procedures in PRIs to ensure transparency and effective control over expenditure
& income?
Response:
10. Is there any key issues/ challenges in auditing of District, Intermediate and
Village Panchayats?
Response:
11. What has been the Panchayats own source of revenue generation/ taxation
powers of panchayats? List down all the components for revenue
generation/taxation powers of Panchayats.
Response:
ANNEXURE 4 – Discussion Checklist with NGOs/CSOs
General Information A.
Date:
B. Name of the State………………………………………………………………………………
C. Name of the Agency ………………………………………………………….
D. Name/Designation of the Respondent:
E. Year’s of experience with PRI: ___________________
F. Nature of Work; Policy/Implementation/Monitoring/Capacity Building
G. Institutional Engagement; ZP/ Intermediary/GP
1. What is the frequency of meeting of the DPC prescribed by the State Government
notification? What is the frequency of DPC meetings in practice? What are the reasons for
variation?
Response:
2. What is the community's involvement in the planning process at village/ward level? What are
the provisions in the FFCs or other State Govt. Acts/orders? What is the actual situation on the
ground?
Response:
3. What has been the status on the devolution of Functions to the PRIs?
Response:
4. What has been the status on the devolution of functionaries to the PRIs?
Response:
5. What has been the status on the devolution of funds to the PRIs?
Response:
6. Has there been any special drive by the State to strengthen the Panchayats in Scheduled
Areas? (Yes/No) If yes, please provide details. How has it helped in implementation of PESA?
Response:
7. Does the actual devolution of functions, functionaries and finances to sample PRIs in Schedule V areas
differ from those in other areas of the State? Please provide examples to illustrate
Sl. Department/
Subject
What special devolution of functions, functionaries
and finances under PESA have taken place to:
Remarks
District
Panchayat
Block
Panchayat
Gram
Panchayat
1
2
3
4
5
8. Are the activities of various tiers of Panchayats sufficient/ adequate to respond to issues and concerns? Why?
Response:
9. How can Panchayats undertake current activities better/ differently to respond better to issues
and concerns?
Response:
10. Any specific suggestion to improve the devolution of 3Fs in the State?
Response:
Annexe 5 – Gram Panchayat Tool Background
Information
A. Village Name………………………………………………………………………………
B. Block…………………….. C. Gram Panchayat……………………………………
D. District…………………………………………….
E. Date of Survey ………………………………
F. Surveyor Name……………………………………...................................
G. Name of the Sarpanch ………………………………………………………..
H. Mobile No. of the Sarpanch …………………………………………..
1. General: Meetings & Participation
1.1 What is the frequency (regularity) of meetings of Gram Panchayat in a year?
Once Twice Twice More than None
1.2 Are minutes maintained for meetings?
Yes No
1.3 Who is responsible for maintaining minutes of minutes?
……………………………………………………..
1.4 What are the reasons for irregular meetings?
a) Lack of awareness
b) Lack of Interest
c) Lack of information from Gram Panchayat
d) Others …………………….
e) Regular meetings are organised
1.5 What is the number of times the Gram Sabha is to meet in a year?
………………………………..
1.6 What is the quorum for the Gram Sabha?
………………………………
1.7 What is the overall comment on the Gram Sabha Meetings in the context of their: Frequency:
Attendance:
Issues discussed:
Resolutions adopted:
Minutes maintained:
1.8 Are there government, semi-government and Panchayat employees involved in the proceedings of the Gram
Panchayat?
Yes Don’t
Know
1.9 If yes, who are these individuals and what is nature and extent of their involvement in the Gram Panchayat
Meetings? Mention their Designation.
From Government: ________________________
No
From Gram Panchayat: ____________________________
Others: __________________________
1.10 Are the financial and other records including progress reports of various development schemes/ works
maintained properly?
Yes No
1.12 Is there a provision for Standing Committees at various levels of Panchayats?
Yes Don’t Know
1.13 If yes, details on the Standing Committees at Panchayat level:
Purpose of the
Standing
Committee
Frequency of
meetings
Role of Standing
Committee in Planning,
Budgeting,
Implementing
& monitoring
Level of
Coordination with
Panchayat
* Excellent, Very
Good, Good, Fair &
Poor
1.14 Is the Panchayat involved in preparation of Annual Reports?
Yes
1.15 If yes, how are annual plans prepared? What is the process and who/which body plays key role? Mention
in details
1.16 If yes, do the Panchayat publish their Annual Reports?
Yes
1.17 If no, what are the reasons for non-publication?
1.18 Suggest your comment on the functioning of Gram Sabha
No. of Meetings Attendance
Issues
Discussed
Mention some
issues
Minutes maintained
*Yes or No
Level of
Participation of
Women, SC & ST
Groups
Mention
Date/Month….
Mention
Date/Month….
No
No
No
1.19 What are the major challenges impeding translation of Government policy in to practice?
2. Planning
2.1 If the annual plan is prepared by the Panchayat, are the community members involved in ward and village
level planning for the annual plans?
Yes
2.2 If no, how can the community involvement in local planning be made for substantive?
2.3 Do the Gram Sabha play any role in the selection of development interventions and beneficiaries for the
same?
Yes No
2.4 If yes, what kind of role they play.
2.5 Do the Gram Sabha play any role in planning, execution and monitoring of different
development schemes?
Yes No
2.6 If yes, mention their role in few Govt. schemes
Govt. Schemes Role & Responsibilities Level of Coordination
with
Panchayat
* Excellent, Very Good,
Good, Fair & Poor
2.7 Is there a system in the State to monitor and ensure the mandated quorum of Gram Sabha?
Yes No
2.8 Do the Gram Sabha have sufficient funds to convene GS Meeting and for videography/photography of such
meeting?
Yes No
2.9 In case of insufficiency of funds, do the State provide fund to Gram Panchayats for convening GS meeting?
No
Yes No
2.10 In case of non-convening of Gram Sabha, what are the actions taken by the State, if any?
2.11 Is Social Audit Conducted in the Gram Panchayat?
Yes No
2.12 If yes, who conducts it?
Gram Sabha Others (Specify) …………………………..
2.13 Details of the Social Audit with frequencies.
Govt. Schemes How often are the social audits conducted
1. Once in a Year
2. Once in 6 Months
3. Others (Specify)
Are the reports of social audits put in public domain
1. Yes
2. No
MGNREGA
IAY
SSA
ICDS
2.14 Has any mechanisms adopted by the State and Panchayats for ensuring accountability, including a
Panchayat Ombudsman?
Yes No Don’t Know
2.15 What are the challenges impeding translation of policy in to practice?
3. Devolution of Functions
3.1 Role of Panchayats in Parallel Bodies/Institutions
Please tick in appropriate box to show the nature of control of Panchayats on parallel
bodies? The list is only indicative. Please add other important parallel bodies.
Sl.
No.
Status/Parallel
Bodies VEC VHSC JFMC WDC Others Others
1
Parallel bodies merged
with
Gram Panchayat
2
Parallel bodies
accountable
to Gram
Panchayat
3
Parallel bodies are
chaired by
Sarpanch/Chairperson/
Ward Member
4
Parallel bodies totally
separated from Gram
Panchayat
5 Any other please
mention
3.2 Role of Panchayats in Government bodies
Please tick in appropriate box to show the nature of control of Panchayats on parallel bodies?
The list is only indicative. Please add other important parallel bodies.
Sl. No.
Status/Parallel
Bodies DRDA ITDA
District unit of Water & Sanitary Mission
NRHM SSA Mission
Agriculture
Deptt. Others
1 Parallel body merged
with the Panchayat Institution
2 Parallel body made an
unit of the Panchayat
3
Function of parallel
body limited to Fund/accounts Management
4
Parallel body is
Presided/ Chaired by
Elected
Representatives of
the Panchayat
5
Elected
Representatives of
Panchayats are
represented in Board
of the parallel body
6 Parallel body remains
separate, but under
the
control of the
Panchayat.
7
Parallel body remains
separate and not
under the control of
the Panchayat
3.3 Involvement of Gram Panchayats in Important Schemes. Please tick the appropriate box (es) indicating
respective activities undertaken by Panchayats under each scheme.
Sl.
No.
Important Union
Government
Schemes
Role and Responsibilities of Gram Panchayat
Planning Implementation Monitoring
1 National Horticulture Mission
2 Sarva Shiksha Abhiyan (SSA)
3 NRDWP
4 NBA
5 National Rural Health Mission (NRHM)
6 Integrated Watershed Management
Programme (IWDP)
7 Mahatma Gandhi National Rural Employment Guarantee Programme
(MNREGA)
8 IAY
9 Pradhan Mantri Gram Sadak Yojana
(PMGSY)
10 Integrated Child Development
Services
(ICDS)
11 National Rural Livelihoods Mission
(NRLM)
12 National Food Security Mission
(NFSM)
13 National Social Assistance Program
(NSAP)
14 Any other (Specify)
3.4 Involvement of Gram Panchayats in Important Schemes. Please tick the appropriate box (es) indicating
respective activities undertaken by Panchayats under each scheme.
Sl. No.
Functions Delegated by
Legislature
Activity Mapping with
date
Executive
Order Issued
with date
Actually, undertaken
by GP
1. Yes 2. No
1 Drinking Water, Water
Supply for Domestic
Purpose
2 Roads
3 Culverts
4 Maintenance of
Community Assets
5 Street Lighting, Parking
Lots, Bus Stops
6 Primary Health Centre
7 Sanitation & Solid Waste
Management
8 Cremation & Burial
9 Poverty Alleviation
Programmes
10 Family Welfare
11 Women & Child
Development
12 Adult & non-Formal
Education
13 Agriculture & Agricultural
Extension
14 Land Reform
15 Any other
16 Any other
17 Any Other
3.5 What are the challenges impeding translation of policy in to practice?
4. Devolution of Functionaries
4.1 Whether there exist State Panchayat Service?
Yes
4.2 Staff Structure of Gram Panchayat:
Staffs Secretary
Junior
Engineers
Technical
Assistants
Data
Entry
Operators
Accountant
Others
(Plz
specify)
How many
following staffs are Present?
(in
Numbers)
No
Who pays the salary of
the above staff?
(State or
Panchayat)
4.3 Please give sanctioned and actual staff position of Panchayat’s own office only (not other officials under its
control) Pls tick where applicable
Sl.
No.
Designation
of
Employee
Nature of
Appointment
Designation of Recruiting
Authority
Sanctioned
Strength
Actual
Number Vacant
Regular Contractual
1
2
3
4
5
6
7
8
Total Employees
4.4 Please specify the power and functions of Panchayats: Please tick in appropriate box
Sl.
No. Officials
Power and Functions of Gram Panchayat
Appointment Transfer Disciplinary
matter
Others
(Specify)
1 Primary School Teacher
2 Secondary School Teacher
3 High School Teacher
4 Para Teachers
5 Child Development Project
Officer or equivalent in
ICDS
6 AnganWadi Worker
(AWW)
7 Medical
Officer/Veterinary Officer
8 Primary Health Worker
9 Accredited Social Health
Activist (ASHA)
10 Agriculture Extension
Officer
11 Agriculture Extension
Worker
12 Block Development Officer
(
BDO )
13 Welfare Extension Officer
14 Gram Panchayat
Extension
Officer
15 Village Level Worker
16 Medical Officer
17 Any other (Specify)
4.5 What are the challenges impeding translation of policy in to practice?
5. Devolution of Funds
6. Grants to the Panchayat
Instalment of Grants
Released by state
Amount (in Lakhs) Released to Panchayats
on
DD/MM/YYYY
1st for the year 2014-15
2nd for the year 2014-15
1st for the year 2015-16
2nd for the year 2015-16
1st for the year 2016-17
2nd for the year 2016-17
6.1 Funds available with Gram Panchayat
Sl.
No. Break up of Revenue Amount in Rs.
Financial Year 2015-16
1 Revenue transferred to Panchayats by State
2 Panchayats Own Revenue including collection from
rental, lease, etc.
3 Plan Grant transferred by State to Panchayats untied
to any scheme
4 Plan Grant transferred by State to Panchayats tied to
schemes
5 Non-Plan Grant transferred by State to Panchayats
untied to any scheme
6 Non-Plan Grant transferred by State to Panchayats
tied to schemes
7 Loan taken by the Panchayats
8 Any other transfer-Please specify
Total
Financial Year 2016-17
1 Revenue transferred to Panchayats by State
2 Panchayats Own Revenue including collection from
rental, lease, etc.
3 Plan Grant transferred by State to Panchayats untied
to any scheme
4 Plan Grant transferred by State to Panchayats tied to
schemes
5 Non-Plan Grant transferred by State to Panchayats
untied to any scheme
6 Non-Plan Grant transferred by State to Panchayats
tied to schemes
7 Loan taken by the Panchayats
8 Any other transfer-Please specify
Total
Sl.
No. Items 2015-16 2016-17
1 Expenditure on salaries paid by the
Panchayat
2 Capital Expenditures made by
Panchayats
3 Revenue Expenditures made by
Panchayats
4 Expenditure on Centrally
Sponsored Schemes
5 Expenditure on other Schemes
6 Total expenditure made by all Panchayats
of the State
Sl. Name of Revenues Gram Panchayats
No. Tick only those
revenues collected
by State agencies
and partly shared
with Panchayats
Tick only those
revenues
collected by the
State but
transferred
totally to
Panchayats
Empowered to collect
Actually collecting
1 House or property
tax
2 Surcharge on house
or property tax
3
Tax on agriculture
land
for specific
purpose
4 Tax on professions,
trades, calling, etc
5 Octroi
6
Tax on goods sold in
a market, haat, fair,
etc
7 Cattle tax
8
Special tax
for
community civic
services or works
9
Surcharge on any tax
imposed by Gram
Panchayat
10 Pond/Tank Lease
11 Village Land Lease
12 Any Other
13 Any Other
6.2 Expenditure of Gram Panchayat
6.3 Empowerment of Panchayats to Impose and Collect revenue (Taxes/ Fees/ Duties/ Cess/ Toll/ Rent etc.)
Please tick appropriate boxes, if Panchayats are empowered and/or actually collecting taxes.
Please add any other Panchayat revenue not in the list.
6.4 What is the number of departments which have a Panchayat Window/ Head in their budgets?
List these departments.
6.5 What are the challenges impeding translation of policy in to practice?
7. Accounts and Audit
7.1 Does the State law have provisions related to maintenance of accounts and audit of Gram Panchayats?
Yes
7.2 Whether Budget & Account format for Panchayats as prescribed by C&AG is followed?
Yes
7.3 Are the following documents of the panchayats available on internet?
a. Budget Proposals
b. Accounts Statements
c. Audited Accounts
d. Annual Performance Report
7.4 If yes, specify the website, where accounts of Panchayats are available?
7.5 Has the Gram Panchayat have disclosed his Account Statement Online? Yes
No
7.6 Who undertook the process of updating accounts online?
Own Staff
7.7 Who audit the accounts of the Gram Panchayat?
1. C&AG
4. Not Audited
7.8 Name the Govt. Departments having account with the Gram Panchayat.
1. ………………………………..
2. ………………………………...
3. ………………………………..
No
No
Outsourced
2. Local Fund audit 3. Others (Specify)
8. Capacity Building
8.1 Whether training is imparted throughout the year or only after the election?
1. Throughout the fixed Year 2. After
4.Never
8.2 Did the Gram Panchayat functionaries involved in the training need assessment of the members in the last
three years?
Yes No
8.3 What are the training modules opted by the State Government in the year 2015-16?
1. ………………………………..
2. ………………………………
3. ………………………………
4. ………………………………….
8.4 Did the State provide training material in local language?
Yes No
8.5 In what form the training materials were provided in 2016-17? (Please tick) a) Written material b) Training
films
c) Film shows
d) CDs
e) Others (Specify)
8.6 Is there distance learning through satellite based training in 2016-17? Yes
8.7 If yes, how many block resource centres are in existence? (Please give numbers) 8.8
Training of Elected Representatives and Officials
Level and Year Total Number of Number Trained
Elected
Representatives
Panchayat
Officials
Elected
Representatives
Panchayat
Officials
2015-16
2016-17
2017-Till date
Percentage of
Elected
Representatives
trained in 2016-
2017
Women Men
Election 3. Nothing
No
Percentage of
Elected
Representatives
trained in the
following categories
in
2016-2017
SC (%) ST(%) General (%)
8.9 Is there any mechanism to assess the impact of training provided?
Yes No
8.10 If yes, please elaborate?
8.11 What are the challenges impeding translation of policy in to practice?
9. Infrastructure & E-connectivity
9.1 Do the Gram Panchayat have Pucca building?
Yes
9.2 Do the Gram Panchayat have Computers & Printers?
Yes No
9.3 Do the Gram Panchayat have Scanners?
Yes No
9.4 Do the Gram Panchayat have Telephone?
Yes No
9.5 Do the Gram Panchayat have Internet?
Yes
9.6 Are the Gram Panchayats connected to each other through LAN or WAN?
Yes No
9.7 Do the Gram Panchayat use wireless connectivity? Yes
No
9.8 Do the Gram Panchayat have its own e-mail address?
No
No
Yes
9.9 Do the Gram Panchayat regular in uploading their data online? Yes
9.10 Do the Gram Panchayat use ICT for delivering services?
Yes
9.11 What all services are delivered using ICT in the Gram Panchayats
9.12 How many Panchayat officials have been trained in computer applications?
9. Accountability and Grievance Redressal Mechanism
9.1 Whether the Gram Panchayat provide information to the public under RTI Act?
Yes No
9.2 Who is the Information Officer under RTI Act at each Panchayat? (mention their designations)
9.3 Who is the 1st Appellate Authority under RTI Act? (mention their designations)
9.4 Who is the 2nd Appellate Authority under RTI Act? (mention their designations)
9.5 Has the Gram Panchayat has any policy for disclosure of information by the Panchayat to the public?
Yes
9.6 If yes, what are the modes used for disclosure of information?
1. Display in Notice Boards
9.7 Which institution undertakes the complaints of the Gram Panchayat? Please tick
1. Ombudsman
4. Others (Specify)
9.8 Number of cases reported for action by the above institutions in the last one year. (Give numbers)
10. PESA ACT (To be used only in PESA district)
10.1 How has the PESA Act accelerated devolution of power to tribal areas?
No
No
No
No
2. Website 3. Others (Specify)
2. Lokayukta 3. Govt Agency
10.2 How does the Panchayati Raj Act empower the Gram Sabha to safeguard and preserve the traditions
and customs recognize competence of the people, their cultural identity? Mention
briefly on the various legislations/Executive orders issued by the State Govt.
10.3 Is there any provisions in the Panchayati Raj Act to empower/recognize competence of Gram Sabha
for management of community resources?
Yes No
10.4 Is there any provision in State Panchayati Raj Act for approval of the plans, programmes and
projects for social and economic development of the village level?
Yes
10.5 Is there any provision for the identification or selection of persons as beneficiaries under the poverty
alleviation and other programmes?
Yes
10.6 Has the Gram Sabha been empowered as per State Panchayati Raj Act to issue certification of
utilization for expenditure of programme funds? If not, then which is the competent authority?
Yes No
10.7 How does the State Government monitor the functioning of Gram Sabhas in Schedule V Areas?
Please give details.
10.8 Are the Gram Sabhas conducting the social audit of various programmes?
10.9 If yes, Please give details.
10.10 Has there been any specific Capacity Building Training programme of the Gram Panchayat
functionaries on the PESA Act?
Yes No
No
No
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